Pakistan country strategy 2010-2015

Transcription

Country Strategy
Pakistan
Country Strategy 2010 - 2015
WaterAid Pakistan CS 2010-15
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Executive Summary
Pakistan is strategically located in Southern Asia, bordering the Arabian Sea, between India on the east,
Iran and Afghanistan on the west, and China in the north. It is a developing country with the world's sixthlargest population, estimated at 180.8 million1. It is currently the most urbanised country in South Asia,
with over a third of the total population living in urban areas. It is estimated that by 2015, almost half of
Pakistan's residents will be living in urban settlements, with their own challenges, particularly in the
delivery of basic services including water, sanitation and shelter.
Pakistan being co-opted into the ‘war on terror’ has had important bearing on developments on the
political front in the country in recent years. The resentment this has generated in substantial sections of
society has led to increased incidence of suicide bombings, creating insecurity among the people. The
inability of the state to secure the safety of its people has changed the context in which development
debate or interventions now take place.
Pakistan is a middle income country with social, human and gender development indicators of least
developed economies. This is due to highly unequal distribution of income, low allocation and utilization of
budget for social sector and elite dominated power structure. Frequent takeover of political power by the
military has further strengthened this inequality and deprivation.
The sector analysis of water availability and consumption shows that per capita water availability has been
decreasing over time due to the combined impact of population growth, falling water flows, systems
losses, and erosion in storage capacity. Irrigation uses about 93% of the water currently available, and the
rest is used for supplies to urban and rural populations and industry. With the country’s population set to
increase by over 50% by the year 2015, the volume of water required, particularly by those living in the
urban areas, is set to increase dramatically. Access to safe and clean drinking water remains a major
challenge.
The Government of Pakistan is signatory to Millennium Development Goals (MDGs) and most of the
international conventions on reduction of poverty, improvement of environment and provision of adequate
water and sanitation services to the poor. This commitment is also upheld by national water and sanitation
policies and provincial plans of action and strategies. Budget allocated by various tiers of government for
improvement of WASH is under spent, inappropriately or inefficiently spent. Conducive policy environment
and under utilization of budget both provide enormous space to right holders in WASH sector to effectively
claim their rights by influencing government through demonstration of good practices and advocacy by
evidence, and effective engagement. WaterAid Pakistan (WAP) can very effectively use the opportunity to
engage and influence the government through the Rights Based Approach (RBA), with the help of its
partners. (Details in Appendix 3, section 3.8 “Why RBA Approach").
The pre-CSP period 1993-2008, before the WAP office was established, focused entirely on Urban
Sanitation, with partners selected by Orangi Pilot Project (OPP) replicating the component sharing model;
the first Country Strategy Plan (CSP) introduced a more integrated approach bringing water and hygiene
into the picture, it advocated for pro-poor policies and introduced systems that would enhance
effectiveness and accountability. The advent of the new global strategy, introduced changes that had to be
taken into consideration which curtailed the previous CSP implementation period and made way for a new
Country Strategy (CS). This evolution has been illustrated in Figure 1 in this doc. The key shifts in the CS
are a stronger focus on policy implementation, introduction of RBA through Equity & Inclusion (E&I), a
more strategic look at balancing resources between water, sanitation and hygiene; being strategy driven
rather than partner led; policy interventions at provincial rather than only at national level and engaging
with the wider development arena.
1
2009 World Population Data Sheet - Population Reference Bureau
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WAP will continue what it began in the previous CSP and strengthen its systems, build capacity of
partners enabling them to develop into strong support organizations, deepen its work in the selected areas
of operation, and seek more contracted funding.
These shifts are clearly linked to WA’s global strategy, wherein Aim 1 states We will promote and secure
poor people’s rights and access to safe water, improved hygiene and sanitation, this CS’s proposed shift
from policy advocacy to policy implementation contributes towards this Aim. Similarly by supporting the
government build the capacity of its staff to plan, develop and implement need based, affordable and
acceptable water, sanitation and hygiene (WASH) solutions suited to the socio economic conditions and
requirements of low income communities and marginalized groups, WAP will be contributing towards Aim
2 - We will support governments and service providers in developing their capacity to deliver safe water,
improved hygiene and sanitation. In accordance with Aim 3 - We will advocate for the essential role of safe
water, improved hygiene and sanitation in human development, WAP will mobilize, engage and support
players from the media, education and health sectors.
The linchpin of WAP’s new strategy would be the well guided civil society organizations with strong
managerial, technical and social mobilization capacity, building on systems WAP has put in place for
improved performance of its partners. Due to changing global reporting requirements and weak existing
capacities of the current CBO partners WAP will have to dedicate more resources to raise the level of
professional expertise of its partners, and together they will work closely with relevant government
departments and agencies to scale up WASH services.
Both the old CSP & the new CS mention deepening of work in the current areas of operation, however, if
the external environment and resources permit, WAP will explore possibilities of working in Balochistan
and Azad Kashmir towards the end of this strategic period.
With these shifts in the country strategy and in alignment with the aims of WA’s global strategy; WAP will
need to engage professionals possessing relevant expertise, in accordance with Aim 4 - We will further
develop as an effective global organisation recognised as a leader in our field and for living our values.
Human and financial resources required to cater to this expansion have been carefully reviewed by the
SMT, who proposed a modest increase from twelve (2009-10) to nineteen (2014 -15). Besides
strengthening existing systems, efforts will be made to develop a diverse team wherein each one
contributes towards WA’s global aims. Essential resources required for the expanded programme would
be, Rs. 681 million. Given the resource crunch in the social sector due to global and national economic
decline, increased incidences of terrorism, increasing food insecurity and inflationary pressure, WAP will
need to aim for more ambitious financial targets in order to make significant impact as the only specialized
agency in the WASH sector in Pakistan, for this efforts to tap resources from other donors will be made.
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Contents
Executive Summary
Contents
Abbreviations
Introduction and background to the country programme
• Purpose of this CS and its linkage with the new Global Strategy and four strategic aims
• Background information on the CP
Looking back-progress and key shifts over the last strategic period
A) Situational analysis
• Political Situation (politics, governance, human rights)
• Economic development (GDP, growth sectors, trade, external aid)
• Social development (per capita income, human development indicators, poverty dynamics)
• Cultural context
• Major challenges and trends(natural resources, population growth, urbanization, climate
change)
• Climate change and its impact on the WASH sector
• Overview of current WASH status(budget allocation, coverage figures, targets / trends)
B) Rights, equity and inclusion analysis
C) Sector review
• Sector policy/strategy
• Sector coordination
• Sector finance
• Institutional arrangements and capacity
• Performance monitoring and accountability
• Sector review - Strategic planning tool
D) Stakeholder analysis
E) SWOT analysis
Country programme strategic objectives and indicators
Human resources
Financial resources
Risk management
Monitoring and evaluation
Appendices
Appendix 1: CS planning process
Appendix 2: Projected number of people supported
Appendix 3: Information for analyzing stakeholders and reviewing sector
Appendix 4: Risk management plan
Appendix 5: Sources of information
Figures and tables
Figure 1:
Evolution of WAP’s CSPs since inception
Figure 2
Relationships between Population and Water Availability
Figure 3
Organogram WaterAid Pakistan
Table 1
Water and Sanitation Coverage
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Abbreviations
ADB
ADP
AJK
CBO
CCB
CDN
CDWA
CDWI
CLTS
CP
CPI
CR
CS
CSO
CSP
DAs
DCO
DRC
E&I
EAD
EC
EPA
FANSA
FATA
FBR
FY
GDI
GDP
GEM
GoP
HDI
HDR
HPI
ICSI
IDP
IMF
Asian Development Bank
Annual Development Plan
Azad Jammu & Kashmir
Community Based Organization
Citizen Community Board
Community Development Network
Clean Drinking Water for All
Clean Drinking Water Initiative
Community Led Total Sanitation
Country Programme
Consumer Price Index
Country Representative
Country Strategy
Civil Society Organization
Country Strategy Plan
Development Authorities
District Coordinator Officer
District Review Committee
Equity and Inclusion
Economic Affairs Division
European Commission
Environmental Protection Agency
Fresh Water Network in South Asia
Federally Administered Tribal Areas
Federal Board of Revenue
Fiscal Year
Gender Development Index
Gross Domestic Product
Gender Empowerment Measure
Government of Pakistan
Human Development Index
Human Development Report (UNDP)
Human Poverty Index
International Commission for Snow and Ice
Internally Displaced Persons
International Monetary Fund
OPP
OPP-RDT
OPP-RTI
P&D
PACOSAN
PASF
PCPDD
PCRWR
PCSIR
PDSSP
PEPA
PEPC
PHED
PIHS
PLGO
PM&E
PMDFC
PRSP
PURC
QRP
RBA
RD
RMT
RSP
RSPN
RWH
SACOSAN
SMART
SMC
SMT
SO
SOP
SUN
SWM
SWOT
TMA
INGO
IRC
IRSP
IYS
LG
LGO
MDG
MNA
MOE
MoU
MPA
MPB
MTDF
MTR
NCCWS
International Non governmental Organization
Indus Resource Center
Integrated Regional Support Programme
International Year of Sanitation
Local Government
Local Government Ordinance
Millennium Development Goals
Member National Assembly
Ministry of Environment
Memorandum of Understanding
Member Provincial Assembly
Multi Plan and Budget
Medium Term Development Framework
Mid Term Review
National Coordination Committee on Water and
Sanitation
National Drinking Water Policy
National Drinking Water Quality Standards
National Environmental Policy
Non governmental Organization
National Sanitation Policy
Operations and Maintenance
Official Development Assistance
Open Defecation Free
Pakistani Rupees
ToR
UC
UCBPRP
UIB
UNDP
UNICEF
WA
WAP
WAPDA
WASAs
WASCO
WASH
WATSAN
WESNet
WLB
Orangi Pilot Project
Orangi Pilot Project – Rural Development Trust
Orangi Pilot Project - Research and Training Institute
Planning & Development
Pakistan Conference on Sanitation
Project Appraisal Summary Format
Planning Commission and Planning & Development Department
Pakistan Council for Research in Water Resources
Pakistan Council for Scientific and Industrial Research
Punjab Devolved Services Support Programme
Pakistan Environmental Protection Act – 1997
Pakistan Environment Protection Council
Public Health Engineering Department
Pakistan Integrated Household Survey
Punjab Local Government Ordinance
Planning, Monitoring and Evaluation
Punjab Municipal Development Fund Company
Pakistan Poverty Reduction Strategy Paper
Punjab Urban Resource Center
Quarterly Review and Planning
Rights Based Approach
Regional Director
Regional Management Team
Rural Support Programme
Rural Support Programmes Network
Rain Water Harvesting
South Asian Conference on Sanitation
Specific, Measurable, Achievable, Realistic and Timed
School Management Committee
Senior Management Team
Support Organizations
Standard Operating Procedure
SUN-Global Accounting System
Solid Waste Management
Strengths, Weaknesses, Opportunities and Threats
Tehsil/Taluka/Town Municipal Administration – middle tier in three
tier local government system
Terms of Reference
Union Council – lowest tier in three tier local government system
Union Council Based Poverty Reduction Programme
Upper Indus Belt
United Nations Development Programme
United Nations Children’s Fund
WaterAid
WaterAid Pakistan
Water and Power Development Authority
Water and Sanitation Authorities
Water and Sanitation Committee
Water, Sanitation and Hygiene
Water and Sanitation
Water and Environmental Sanitation Network
Work Life Balance
WRM
WSDCG
WSS
YJMF
Water Resources Management
Water and Sanitation Donor coordination Group
Water Supply and Sanitation
Young Journalist Media Fellowship
NDWP
NDWQS
NEP
NGO
NSP
O&M
ODA
ODF
PKR
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Introduction and background to the country programme
Purpose of this country strategy and its linkage with the new global strategy and four strategic aims
The previous CSP 2008-11 was based on collaborating with a select group of partners in three provinces
and strengthening their capacities, engaging government in dialogue through policy advocacy and
replicating the component sharing model for development. The new CS is based on the directions
provided by the new global strategy, concerns emerging from changes in national context and lessons
learned during the past programme cycle. The new CS reflects (a) a shift from pro poor policy advocacy to
implementation of policies that promote and secure people’s rights and access to safe water, and improve
hygiene and sanitation, making a transition from the need based to rights based approach in accordance
with Aim 1 of WA’s global strategy; (b) capacity building of government and NGO partners in accordance
with Aim 2. This implies provision of technical and financial support to local government institutions to play
their role as duty bearers effectively and capacity development of local communities and Civil Society
Organizations (CSOs) for demanding their rights as right holders for the implementation of improved water
and sanitation services and hygiene promotion under the component sharing model. This change in policy
is also connected with Aim 3 - This change in policy is also connected with Aim 3 - contributing to human
development, by engaging with other key players outside the sector, who also play some role in promoting
WASH. In line with Aim 4, WAP will introduce proper systems, transparency and accountability, not only of
its partners but also of itself – in an attempt to “walk the talk”.
Background information on the country programme
WAP’s Country Office in Islamabad operates through three programmes at National level and in the
provinces of Punjab and Sindh. WAP’s work consists of three main components; (i) providing financial
support and technical assistance to a network of CBOs and NGOs for improvement of WASH services; (ii)
participating as a lead player in advocacy for implementation of sector policies in collaboration with other
stakeholders and (iii) developing multi-stakeholder partnerships with NGOs, schools, academic and
research institutions, private sector, health providers and government bodies. During the new CS period,
WAP plans on influencing macro level changes by the government, through micro level demonstrations of
its partners as effective rights holders.
As part of this approach, WAP will engage with the government to effectively implement policies and utilize
resources. Simultaneously, it will support CSO and communities to develop their capacities as rights
holders, demonstrate effective low cost infrastructure models, ensure community involvement in operation
and maintenance (O&M) of village schemes, and with the minimum service delivery input- influence
working of government on a large scale in selected geographic areas. This RBA to improve WASH
indicators is based on the component sharing model, through which communities and government
institutions are guided and strengthened with help from Support Organizations (SOs). This interactive
approach of enabling right holders to seek better services from duty bearers uses demonstration work as
evidence for advocacy at policy level and will act as a model for expansion by other key stakeholders. This
will provide an effective way for WAP to leverage its limited resources for maximum impact, drawing on
lessons from the last strategic period, present situation analysis and review of sector policies and
practices.
Looking Back – Progress and Key Shifts over the Last Strategic Period
WAP’s Senior Management Team (SMT) reflected on the past strategic period to draw lessons for the
future course of action and identified key achievements and challenges (details in Appendix 1). The
achievements and challenges are clustered below:
Achievements
Leadership through advocacy and innovations
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At policy level, it was felt that WAP had gained recognition as a key WASH player. This was evident
through activities such as International Year of Sanitation (IYS), Community Led Total Sanitation (CLTS)
core group, Pakistan Conference on Sanitation (PACOSAN) /South Asian Conference on Sanitation
(SACOSAN), and the WATSAN donor group interactions. The team took pride n taking the lead in pushing
the SACOSAN agenda and Budget Advocacy in the sector. Managers acknowledged the input of partners’
active involvement in pushing the National Sanitation Policy (NSP) forward. Innovations by WAP partners
in work on Solid Waste Management (SWM), Rainwater Harvesting (RWH), and WAP’s own Young
Journalist Media Fellowship (YJMF), have all generated interest and plans to involve the government to
take over some of these.
Stronger and strategic partnerships
WA proved to be flexible in instances of emergency - Internally Displaced Persons (IDP) and Gojra, which
helped strengthen existing partnerships in both cases. During the previous CSP period WAP also entered
into partnership with new strategic partners, who were working on issues other than urban sanitation
(school sanitation and hygiene). Some partners had also begun discussing research and policy change
interventions. This indicated some positive change in visioning.
Development of internal systems
Reporting and monitoring mechanisms were put in place for WAP and its partners, and joint monitoring
has helped improve coordination between programme and finance. Partnership agreements were given
out to most partners, feedback sessions were introduced and openness and confidence amongst WAP
team members increased due to annual retreats
Challenges
Weak knowledge management and capacity
Knowledge management and shared learning were identified as challenges, that the team felt needed to
improve both within WAP as well as among partners and other stakeholders. As part of improved
knowledge management, inconsistent sector data needs to be analyzed and reconciled, stronger case
studies that capture actual work and impact need to be developed and capacity of partners in planning
and reporting needs to improve.
The SMT also felt that they needed to be aware of WASH integration that would promote a holistic vision,
and explore avenues that would allow water to be integrated into existing work. Managers recognized the
fact that they would need to guide partners build on activities that support, develop focus and involve
communities during various stages of planning and monitoring. Capacity building initiatives need to be
properly assessed and should not be budget driven; engagement with networks need to improve, and
WAP’s overall planning needs to be more realistic keeping in mind work life balance (WLB), security
issues, requests from WA UK and personal development.
Key shifts – WAP’s previous CSP focused on developing pro-poor policies, however, during the new CS
consultation process, the team agreed that focus needs to shift to support the implementation of these
policies, rather than to advocate for new pro-poor policies. Another shift would be to move away from the
Needs Based Approach to the RBA (details in Appendix 3, section 3.8 “Why RBA Approach"), for which
staff and partners would need training in RBA and E&I. A recent study by WAP highlighted the that
budgets for improving WASH are inappropriately spent by various tiers of the government; this was seen
as an opportunity as it provided space to influence the government through demonstration of good
practices and advocacy by evidence and effective engagement. Another shift is the need to balance
resources between WASH in a more strategic way; WAP’s work should be strategy driven rather than
partner led; programme managers must support policy interventions at provincial rather than only at
national level, and engage with other players from outside the sector who may influence WASH, such as
the media, health and education departments to begin with.
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Figure 1: Evolution of WAP’s CSPs since inception
Pre- CSP
• (1993-2008)
• OPP selected
partners
replicating
component
sharing
CSP (2008-11)
• Advocacy (pro-poor policies)
• Water and hygiene
integrated into programme
• Need based approach
• Partner led
• National level policy
interventions
• Systems introduced
WaterAid’s
Global
Strategy
•
•
•
•
•
•
(2010 – 15)
• New partners with focus on
Hygiene
• Some existing partners
begin work on Water
•
•
CS (2010 – 15)
Policy implementation
Strategy driven programme focus
RBA and E&I introduced
Balanced allocations per sector
introduced
Policy interventions expanded to
provincial level
Widen engagement in development
arena
Seek contracted funding
Focus on professionalism (staff and
partners)
WAP will continue with what it began in the previous CSP and strengthen its systems, assess existing
partners regularly, provide support to partners and improve reporting against the global programme’s
Planning, Monitoring and Evaluation (PM&E) system introduced earlier. On the whole, these recently
introduced systems demand more detail for which WAP staff as well as partners need further capacity
building in order to be more effective and contribute towards WA’s global Aim 4.
The introduction of sub-programmes, now known as “programmes” need to be further refined, WAP will
use this CS period to assess the suitability of having a thematic or maintaining the geographical setup for
its programmes.
Though water and hygiene were introduced in the previous CSP – a shift from urban sanitation, the team
agreed that these were areas that required strengthening as partners begin to look at the programme in a
more holistic manner and were beginning to engage with players from outside the sector, such as the
media, lady health workers (Health) and teachers (Education).
Military operations in Swat led to the IDPs issue in Khyber-Pakhtunkhwa, where WAP shifted funds to
accommodate WASH programme work in IDP camps; similarly the incident of communal violence in Gojra
also required a quick decision regarding an intervention that would support the WASH needs of affected
families, WAP’s prompt action was much appreciated by all. Other similar incidents are likely to occur that
would require WAP’s support in the future for which WAP must be constantly on alert. The learning from
WAP’s work with IDPs and conflict affected communities will feed into WA’s initiatives on climate change,
disaster preparedness and to some extent WAP’s E&I work.
Key lessons
• Transparency and accountability practices enabled WAP to make some difficult decisions, these
practices must continue and be strengthened during the course of the new CS.
• Many small NGOs tend to become donor driven, and readily change focus when they perceive the
availability of funds, WAP must encourage its partners to remain focused without changing direction
constantly. The programme must be strategically driven to focus on impact.
• Partners who involved their staff in various planning activities performed much better, as a common
vision was shared. WAP will encourage increased staff involvement, especially during planning stages,
and involve community members in the future.
• Some partners made changes mid-way in their promotion of CLTS. The reasons must be reviewed and
partners must not feel that they “have to” take on CLTS because WA is promoting it.
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• Based on the experience of RWH and SWM, the team felt that the focus on replication, CSO and
government linkages should have been emphasised some more during the planning stages to enable
quicker scaling up.
• The sustainability of each partnership should be worked out and clear cut off points be identified, to
avoid dependency and enable the partner to seek funding elsewhere.
• Staff was unable to take leave as the work load kept increasing, the team must plan better and allow
more time for WA UK driven initiatives in their plans.
• Use of the WA brand opened new avenues, which made the team realize that the WA brand could be
used to achieve more.
A)
Situational analysis
Pakistan is a federation of four provinces, a capital territory and federally administered areas. It is a
developing country with the world’s sixth-largest population, estimated at over 180.8 million in 20092. It is
currently the most urbanized country in South Asia, with over a third of the total population3 living in urban
areas. It is estimated that by 2015, almost half of Pakistan’s residents will be living in urban settlements,
facing a multitude of challenges, particularly in the delivery of basic services like water, sanitation and
shelter.
Political situation (politics, governance, human rights)
Since its creation in 1947, political power in Pakistan has been held by military and civilian regimes
alternating almost every decade. Pakistan has a multi party system and the Prime Minster is usually the
leader of the largest party in the National Assembly. The President serves as the Head of State with the
Prime Minister as Chief Executive. Government consists of three tiers, federal, provincial and local. Under
the devolution of power to the local government in 2001, all three tiers of local government – District,
Subdivision (known as Tehsil or Taluka) and Union, were given autonomy to raise funds, plan and
implement physical and social development projects independently. Elected local government officials are
assisted by civil servants and technical experts to design and implement local development schemes. The
zila nazim (District Mayor) heads the district administration as a whole and a District Coordinating Officer
(DCO) coordinates the functioning of all government departments in the district.
Before this devolution to the local government, all planning and implementation tasks were controlled by
the provincial government and its line departments4. With the return of civilian government to Pakistan in
2008, the devolution of power to the local government is likely to be reversed or amended. Due to strong
opposition from the elected representatives, the decision in this regard has been put on hold. Irrespective
of the decision regarding the devolution of power, local governments will continue to play an important role
in provision of WASH services. By strengthening cooperation between local government and its partners,
WAP will be able to improve WASH services at local level and use its successes for policy advocacy and
expansion of work.
Weak governance in Pakistan is linked to the government’s dependence on civil bureaucracy and neglect
of popular participation in national decision making, development planning and implementation and
provision of basic services. It results in low budgetary allocation for social sector, under spending of social
sector development funds and misuse of resources. World Bank expert William Easterly in his analysis of
Pakistan’s economic management pointed out that Pakistan received $58 billion in foreign aid from 195099, however, it under-performed on most of the social and political indicators. Pakistan was the third
largest recipient of Official Development Assistance (ODA) after India and Egypt during 1960-98, if it had
invested all the ODA during this period at a real rate of 6%, it would have a stock of assets equal to $239
billion in 1998, many times the current external debt.5 Budget allocations for the social sector in Pakistan
are much lower in comparison than countries at the same level of income. Due to weak management
2
2009 World Population Data Sheet - Population Reference Bureau
Population Census 1998
4
Arif Hasan, The Orangi Pilot Project-Research and Training Institute’s mapping process and its repercussions, Draft, February 15, 2005
5
William Easterly The Political Economy of Growth Without Development: A Case Study of Pakistan Development Research Group, World Bank
June 2001
3
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capacity even low budget allocations for social sector cannot be fully utilized (Appendix 3, section 3.2).
This provides a strategic opportunity for WAP to improve WASH indicators by tapping existing resources
with the active involvement of right holders to claim their WASH rights.
Pakistan has a blemished human rights record and weak governance on its road to democratic
development. Amnesty International’s 2009 Report “Human Rights in Islamic Republic of Pakistan” has
reported gross violation of human rights in Pakistan. According to the government’s own figures, 1,102
people have disappeared in Balochistan province alone. The government’s operations displaced hundreds
of thousands of people. Armed groups committed serious human rights abuses, including indiscriminate
attacks on civilians, abduction, hostage-taking, torture and killing of captives. Women and girls suffered
human rights violations – including “honour” killings, forced marriages, rape and domestic violence – in the
absence of appropriate government action. The government failed to adequately protect religious
minorities against widespread discrimination, harassment and targeted violence. Human rights in social
sector are violated due to inadequate provision of basic services like health, education, potable water and
sanitation. This violation of rights takes place because civil society is weak, legal frameworks are not
complied with, budget allocations are low and mismanaged, and participatory decision making and
complaint redressal systems are lacking. To improve human rights in the WASH sector WAP would need
to build the capacity of both, the right holders and duty bearers in line with global Aims 1 and 2.
Economic development (GDP, growth sectors, trade, external aid)
According to the Pakistan Economic Survey 2008-09, Pakistan’s economic growth has slid down to 2%
from the 4% growth of 2007-08 and this year’s target of 4.5% due to microeconomic crisis, trade shock,
global recession and domestic security challenges. Pakistan’s per capita real income has risen by 2.5% in
2008-09 as against 3.4% 2007-08. Total investment declined from 22.5% of Gross Domestic Product
(GDP) in 2006-07 to 19.7% of GDP in 2008-09. National savings rate has declined to 14.4% GDP in 200809 as against 13.5% of GDP in 2007-08. Overall exports recorded a negative growth of 3.0% during July
2008-April 2009 against the positive growth of 10.2% in the corresponding period of 2007-08. Imports
registered a negative growth of 9.8 percent in July 2008-April 2009 as compared to the same period of
2007-08. Workers’ Remittances totaled $6355.6 million in July 2008-April 2009 as against $5319.1 million
in the comparable period of 2007-08, depicting an increase of 19.5 percent. Foreign Exchange Reserves
amounted to $13.72 billion at the end of Dec 2009.6
The inflation rate as measured by the changes in Consumer Price Index (CPI) stood at 22.3% during JulyApril 2008-09, as against 10.3% in the comparable period of 2007-08. The food inflation is estimated at
26.6% and non-food 19.0% against 15.0% and 6.8% in the corresponding period of 2007-08. This
increase in inflation is due to food price inflation. This economic crunch has put a squeeze on resources to
be allocated for WASH sector due to reduced budgetary allocations for social sector7.There has been a
reduction of PKR100 billion for the social sector in 2009 budget. It has badly affected development
activities. Its slow execution and utilization has also been instrumental in increasing the ratios of poverty.
Cutbacks in health, education and other vital social services have resulted in adjustment policies being
prescribed by the International Monetary Fund (IMF) and the World Bank as conditions for loans and
repayment.
Social development (per capita income, human development indicators, poverty dynamics)
Pakistan ranks very low in poverty alleviation measured by numerous poverty indicators. Some of the
prominent indicators in this regard include, Human Development Index (HDI), Human Poverty Index (HPI),
Gender Development Index (GDI), Gender Empowerment Measure (GEM) and Gini Coefficient.8:
• Pakistan’s HDI is 0.572, which gives the country a rank of 141 out of 182 countries.9
6
http://finance.kalpoint.com/economic-updates/pak-major-financial-news/pakistan-s-foreign-exchange-reserves-rise-to-1372-billion.html
Pakistan Economic survey 2009
8
Pakistan Economic Survey 2009
9
Pakistan Human Development Index 2007
7
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•
•
Pakistan ranks 101st out of 135 countries in HPI.
Pakistan’s GDI value, 0.532 compared to its HDI value of 0.572 shows that its GDI value is 93.0% of
its HDI value.
• Out of the 155 countries with both HDI and GDI values, 152 countries have a better ratio than
Pakistan’s. Pakistan ranks 99 on Gender Empowerment Measure.
• Pattern of income distribution is highly unequal with the top 10% of the population getting 26.5% of
national income and the bottom 10% only 3.9%10. Gini Coefficient reflecting the level of income
inequality for Pakistan is 31.2, which shows increasing trend towards in-equality. Impact of poverty has
further aggravated due to annual average change of 7.6% in Consumer Price Index (CPI) since 2006-7
and incidence of external economic shock.
According to Pakistan Economic Survey 200911 there is a strong likelihood of a sharp increase in the
poverty incidence in Pakistan as a result of unprecedented food inflation and transmission of international
energy prices to domestic poor in 2008-09. 45% of the population working as employees in 2008
witnessed decrease in their real wages. The share of severely food insecure population, increased from
23% in 2005-06 to 28% in 2008. Improvement of WASH indicators under these circumstances would entail
enhancing the capacity of citizens to play an effective role as right holders to demand better service
delivery for water and sanitation from the duty bearers.
Cultural context
Pakistan is a land of diverse cultures, faiths, languages, traditions, customs, social systems and ethnic
groups. 97% of people living in Pakistan are Muslims but Christians, Hindus, Sikhs and Zoroastrians
minorities (3%) constitute an important segment of society. There are four major ethnic groups – Punjabis,
Sindhis, Pakhtuns and Balochs. Pakistan has a varied ecology comprising of seven distinct eco-systems
that have a deep imprint on lifestyles. These eco systems are spread between the world’s highest
mountain ranges (Himalayas, Karakorams and Hindukush) in the north, fertile plains of Indus valley,
desert pockets in the south and south west and coastal and delta region on the shores of the Arabian Sea.
Pakistani society comprises of numerous layers of social systems ranging from tribal communities of
fiercely independent Baloch and Pakhtun tribes to pastoral and fishing communities in the coastal areas
and inland regions, agrarian communities in the plains and urban segments inhabiting Metropolitan cities
with cosmopolitan lifestyle.
History of people living in Pakistan goes back 5000 years and its culture has been enriched by the
assimilation of immigrants settling in the region. Though many disagree with this arguing, the recent
migrant influx has resulted in an escalation of violence and conflict.
Electronic and print media, internet and mobile services in Pakistan are flourishing since the past two
decades. Many new satellite channels, newspapers and periodicals have launched and the emergence of
FM radio has given a boost to the deteriorating radio-listening habits in Pakistan. As these mediums
broadcast programs in different languages to about 10 million households, it offers an enormous potential
as a partner in development for policy advocacy in scaling up of civil society innovations for achieving
MDGs. A vibrant media provides new space to WAP to conduct advocacy for the essential role of safe
water, improved hygiene and sanitation in human development in line with WA’s global Aim 3.
Major challenges and trends (natural resources, population growth, urbanization, climate change)
The major source of fresh water for Pakistan comes from a system of six rivers. The water provided by
these rivers was quite sufficient for both agricultural and domestic purposes. However, in 1960 due to the
the Indus Basin Treaty12 Pakistan had to withdraw its right to using water from its eastern rivers. The
10
11
12
Human Development Report UNDP 2009 pp. 183, 190,199 and 208
Pakistan Economic Survey 2009 (pp196)
The Indus Waters Treaty 1960 - http://siteresources.worldbank.org/INTSOUTHASIA/Resources/223497-1105737253588/IndusWatersTreaty1960.pdf
Page 11 of 51
problem was aggravated and from 1997 to date, Pakistan is confronted by the recurrence of drought and
reduced storage capacity of two major reservoirs namely Tarbela and Mangla built on its western rivers.
The growth in demand for water due to unprecedented urbanization, growth of population and irregular
rainfall in the vast areas of Pakistan is worsening day by day.
According to a 2006 World Bank Report, Pakistan is rapidly moving from a “water stressed country to a
water scarce country” mainly due to high population growth. The ground water is over exploited and
polluted in many areas; most of the water infrastructure and even some of the major barrages are in poor
repair as the entire system of water is not financially sustainable. Constant silting of water reservoirs,
lakes, canals, rivers and waterways is one of the crucial reasons of declining water storage capacity.
Water shortage also occurs due to seepage, leakages and infiltrations, and most of the rainwater is not
conserved. Pakistan’s urban growth rate is 3.5%. 49.7% Pakistanis live in cities of over one million. Trends
indicate that in percentage terms this will increase over time. Availability of water is depicted in figure 2.
Figure 2: Relationship between Population and Water Availability
Per Capita Availability of Water
Population
250
Water Availability
6000
5650
216.8
5000
200
130
2800
100
50
176
4000
150
65.3
33.7
84.2
1900
1700
42.8
140
4000
149
3000
2000
1400 1200
1000 8851000
0
0
1951 1961 1972 1981 1992 2000 2003 2012 2020
Source: Stabilization, a Priority for Development, UNFPA/Ministry of Population
Welfare GoP
WAP is aware of the gravity of the situation depicted in the graph above and will address and promote
various water conservation techniques along with efficient water management systems in line with
resources available.
According to an estimate, WASH related diseases cost Pakistan’s economy about PKR 112 billion per
year, over PKR 300 million a day in terms of health cost and lost earnings.13 “Out of this, the cost
associated with stomach-related diseases alone is estimated at around PKR 55-80 billion per year14”.
Poor sanitation and hygiene practices are also proving to be the barrier against tackling polio, as the virus
is transmitted through faeces of infected people then passed to others living in unhygienic conditions15.
Climate change and its impact on the WASH sector
Glaciers in Pakistan cover 13,680 sq. km which is 13% of mountain regions of the Upper Indus Basin
(UIB). Melted water from these Glaciers contributes more than 60% to the flows from UIB. According to a
1999 report of International Commission for Snow and Ice (ICSI) “Glaciers in Himalayas are receding
faster than in any other part of the world and, if the present rate continue, the likelihood of them
disappearing by the year 2035 is very high”. In 2005 widespread evidence of glacier expansion in the late
1990s in the Central Karakoram was reported in contrast to a worldwide decline of mountain glaciers.
These conflicting findings make the impact of climate change on Karakoram glaciers and Indus River flows
very uncertain16. Similarly, a recent study17 concluded that poverty stricken people, living in the coastal
13
Pakistan Strategic Country Environmental Assessment, World Bank, 2006
Pakistan Strategic Country Environmental Assessment 2006 by South Asia Environment & Social Dev. Unit, The World Bank Report No. 36946PK
15
Statement of Federal Minister for Environment Hameedullah Jan Afridi The Nation, July 30, 2009
16
Arshad Khan , Global Change Impact study Centre, Islamabad, January 2009
14
Page 12 of 51
and arid areas of Pakistan are more prone to the devastating effects of climate change. The study states
that “there has been an increase in the incidence, frequency, and intensity of extreme climatic events:
more intense and heavier rainfall in coastal areas, more intense cyclones, more intense flooding in floodprone areas along the Indus, and more pronounced droughts in the arid areas of Khuzdar……in most
areas, rainfall patterns have become very erratic, making it difficult for communities to predict local rainfall
patterns”.
As climate change continues, due consideration must be given to the social, environment and economic
impacts.18 Maintaining its focus on WASH and its current areas of operation, WAP has identified the water
stressed poor and marginalized communities in the coastal areas of Pakistan as most vulnerable to
climate change as they lack access to information and resources to effectively address climatic change.
Overview of current WASH status (budget allocation, coverage figures, targets/ trends)
There is poor documentation of the existing situation in WASH sector and a great divergence in estimates
of its coverage across regions. Various reports indicate that coverage and access to water supply facilities
range between 50 to 80% and for sanitation between 30 to 50% of total population, with variations across
provinces and urban-rural areas. The official statistics of water supply and sanitation coverage is given in
the following table, due to inconsistent available data, information from two sources have been mentioned:
Table 1 - Water and Sanitation Coverage
MDG Progress Report by GoP on
1990-91
2004-05
MTDF Target
Water & Sanitation Coverage
2009-10
53
66
76
Percentage of population with access to
19
improved water source
Percentage of population with access to
30
54
70
20
sanitation
WHO/UNICEF JMP 2006
Water & Sanitation Coverage
Improved water source
Improved sanitation
1990
2000
2006
86
33
88
48
90
58
MDG Target
2015
93
21
90
MDG Target
2015
93
67
WAP is part of a core group that supports the government to fulfil its commitments to achieve the WASH
related MDG targets. The GoP appears keen to achieve these MDG targets, and has initiated various
programmes in this regard. With the launch of the multi billion rupee Clean Drinking Water for All (CDWA)
programme, the GoP had stepped up efforts to achieve MDG targets (details in Appendix 3, section 3.3).
Pakistan’s adaptation of MDG indicator for drinking water coverage defines it as the proportion of
population (urban and rural) with sustainable access to improved water source i.e. Pipe and Hand Pump
water. As per this definition, water supply coverage increased from 53% in 1990 to 66% in 2005. However
it still has a long way to go in reaching the MDG target of 93% by 201522. In terms of population with
adequate and reliable access to drinking water and sanitation, available figures are widely believed to be
overstated.
Experts are of the view that in reality around 50% of the population has adequate access to drinking water
and a mere 15% to sanitation23.The health implications due to water pollution in the country as a whole are
17
Climate Change, Poverty and Environmental Crisis in Disaster-Prone Areas of Pakistan prepared by Oxfam. The report is based on surveys
carried out in three coastal villages of Badin district in Sindh, three flood-prone villages close to the Indus River in Rajanpur district of Punjab and
three drought-prone areas in Khuzdar district of Balochistan.
18
Address of Environment Minister Mukhdoom Syed Faisal Hayat at the UN Headquarters in New York
http://www.pakistan.gov.pk/ministries/environment-ministry/news/current/Climate_change_hurting_Pak_environment.pdf
19
Pakistan Millennium Development Goal report 2006. http://www.crprid.org/Publications/GoalWise2006/Goal%207.pdf
20
Ibid
21
The governments MDG progress report’s target (90) contradicts the JMP target (67) for improved sanitation; analysis of the situation will tend
to agree with the 67 targeted figure
22
Pakistan Millennium Development Goals Report 2006
23
Zaidi, A. (1997).The Rural Water Supply and Sanitation Sector in Pakistan: Policy, Institutions and Prospects.Study commissioned by WAUK.
Page 13 of 51
enormous: an estimated 100 million cases of diarrhoea are registered with hospitals each year.24 20 to
40% of hospital beds in Pakistan, according to UNICEF figures, are occupied by patients suffering from
water-related diseases, and diseases such as cholera, typhoid, dysentery, hepatitis and guinea worm
infections are about 80% (including diseases due to inadequate sanitation infrastructure) of all diseases.
A national survey of knowledge levels, attitudes and practices for sanitation and hygiene revealed that
majority of the population does not have a clear understanding of the relationship between unsafe excreta
disposal and diarrhoea25. With more than 40% of water supply unfiltered and 60% of effluents being
disposed untreated, waterborne epidemic diseases are common. Human waste and industrial pollution
have severely degraded the groundwater on which a growing number of households depend for their
water supply. Across urban Pakistan, unclean water poses a constant threat to public health. Throughout
2005 and the first half of 2006, major outbreaks of waterborne-disease epidemics swept Faisalabad,
Karachi, Lahore and Peshawar and a host of smaller towns and cities as a result of the leakage of sewage
and industrial waste into drinking water through damaged pipes. The public outcry at this situation created
such a crisis situation that two major public investment programmes CDWA and Clean Drinking Water
Initiative (CDWI) were hastily developed and launched to finance more than 6,000 water filtration plants
across the country.
B) Rights, equity and inclusion analysis
The human rights, E&I issues in Pakistan are extremely intricate in the backdrop of a governance crisis
resulting from an interplay of varied factors such as deep seated cultural traditions, diverse religious
interpretations, and discriminatory application of state laws impinging directly upon the lives of women and
men in different ways. Keeping these factors in mind WAP will develop its E&I strategy, and map
marginalized communities. The framework and strategy together will act as an important roadmap for
WAP’s future interventions in this realm.
Though the Delhi declaration (SACOSAN Nov. 2008), Pakistan’s NSP and National Drinking Water Policy
(NDWP) recognizes access to sanitation and safe drinking water as a basic right. Low income groups are
denied access to these rights because majority of Pakistanis in urban areas live in un-serviced or informal
settlements, which are mostly not recognized by GoP. According to one estimate, 72% of the population of
urban areas of Pakistan will be living in these areas by 2010.26 These groups are denied access to clean
drinking water by mafias who usurp public resources in connivance with corrupt government officials.27
WAP’s SMT and partners recognizes the need of working with women as they bear the brunt of nonavailability of toilets; schools lack proper sanitation facilities which means girls drop out as they have to go
home, creating embarrassment and stigmatization during menstruation. As water carriers in most rural
households, women have gained considerable knowledge of water resources, quality, storage etc. Yet
their role in the sector is overlooked. WAP and its partners plan on addressing this issue during this CS
period.
The other group identified were low income groups and fisher folk in coastal areas who endure the impact
of untreated effluents discharged into water bodies by municipal administrations and industrial houses28.
Bacterial contamination of water, loss of fresh water and aquatic life has severe health and economic
consequences for these groups and result in violation of their right to safe drinking water. Due to weak or
non-existent accountability mechanisms at local level, these low income groups cannot take municipal
authorities to task for this negligence.
24
WHO figures given in PCRWR. 2002-2003.
Discussion Paper: National Strategy and Action Plan – Water Supply and Sanitation, 2005. Ministry of Environment, Government of Pakistan
26
Sindh Katchi Abadi Authority- Upgradation/Improvement of Katchi Abadis- Karachi 2000
27
Urban Resource Centre-Facts and Figures-volume 16 number 8, Karachi August 2008
28
ADB-Country Paper Pakistan-Asian Water Development Outlook 2007
25
Page 14 of 51
Sanitary workers, one of the most deprived and marginalized groups are unprotected and subjected to
discrimination due to their low social status. Disparities faced by this group are severe, and WAP needs to
understand the exact nature of the barriers preventing this group in accessing services, and develop ways
to overcome them. The usual manifestations of gender discrimination on the job, like job insecurity, unsafe
working conditions, non-payment of wages, religious intolerance, rape and disrespect of women, are faced
more abrasively by women sanitary workers who are mostly Christians and peasants especially those
belonging to Hindu religious minority. These religious minorities are excluded from the mainstream, let
alone being consulted while planning WASH services by relevant authorities.
WAP plans on working with these identified groups through the youth, who themselves are vulnerable, but
keen to improve their lives in any way they can. WAP’s E&I focal person will prepare the ground and
collate material for the coordinator who will be on board Q1 of 2011-12.
Internally, WAP has made a commitment to mainstream E&I policies and procedures in the CS,
programme design and implementation, PM&E and communications; to build partners’ expertise in
working with excluded groups at local level and to learn from partners that focus on these excluded
groups.
C) Sector review
Sector policy/ strategy – The 2005 National Environmental Policy (NEP) provides a framework for
sustainable development and addresses water management and conservation, pollution, and waste
management issues.29 The National Water Policy has a vision for adequate water availability through
proper conservation and development, catering for good quality and equitable distribution,30 whereas, the
NDWP31 recognizes access to safe drinking water as a basic human right for every citizen, placing
responsibility chiefly on the state to provide for it. This policy also gives precedence to drinking water over
all other water uses.32 The role of women as key players and a community centered demand driven
approach have been made integral parts of this policy. The National Drinking Water Quality Standards
(NDWQS) 2009 are under review.
The NSP approved in 2006 focuses on the safe disposal of liquid and solid waste, and promotion of health
and hygiene practices in the country. It extends to cover cleanliness, hygiene, proper collection of liquid
and solid waste and their environmentally sound disposal. The National Policy is reflected in the Punjab
Urban Water and Sanitation Policy 2007, Punjab Draft Sanitation Strategy 2007, Sindh Draft Sanitation
Strategy 2008, Balochistan Sanitation Strategy and Action Plan 2008, Balochistan Sector Strategy for
Drinking Water Supply, Sanitation and Hygiene 2006, AJK Sanitation Policy and Strategy 2008 and Draft
Northern Areas Sanitation Strategy 2008. The NSP formally approved the component sharing and total
sanitation models. Under the component sharing model communities mobilize, manage and monitor the
use of funds for provision of toilet and sewerage lines and gutters at the lane level and government
finances and manages trunk lines, collector sewers, disposal and treatment of liquid waste. The total
sanitation model aims at open defecation free (ODF) villages with community participation. NSP also
called for city wide sanitation strategies through City Sanitation Plans for all urban settlements by city
governments and the establishment of mandatory sanitation facilities at public places. Sanitation coverage
was proposed to be increased by close coordination with Katchi Abadi (informal settlements) Improvement
and Regularization Programme and promotion of integrated solid waste management. The NSP proposed
designation of proper landfill sites for the disposal of solid waste and promoted Public- Private- Civil
Society Partnership.
29
Asian Water Development Outlook , Country Paper Pakistan, 2007 Asian Development Bank
ADB Country Paper Pakistan-Asia Pacific Water Forum 2007 pp 3
31
National Drinking Water Policy 2009
32
ibid
30
Page 15 of 51
Sector coordination – Several fora exist for sector coordination on water and sanitation, which include
Pakistan Environment Protection Council (PEPC), National Coordination Committee on Water and
Sanitation (NCCWS), WESNet Pakistan, Water and Sanitation Donor Coordination Group (WSDCG),
Wash Cluster and National Working Group on School WASH Education, Water and Sanitation
Committees (WASCOs), CLTS Core Group, PACOSAN Steering Committee, Sindh Cities Improvement
Project, Punjab Devolved Social Services Programme (PDSSP), Urban Unit Punjab, Punjab Municipal
Development Fund Company (PMDFC), and Khyber-Pakhtunkhwa WASH Directorate. But there is lack of
clarity on the details of what that would mean in practice and who needs to do what when it comes to the
identification of the roles and responsibilities of the various tiers of the government for achieving MDGs
and national goals for WASH. Inadequate coordination and weak consensus between various government
departments; absence of an inter-ministerial, inter-provincial body to oversee water sector planning,
development and management, insufficient database and information on water and weak interaction
between government authorities and water-users contribute to weak management for provision of safe
drinking water and sanitation facilities. These fora do not meet regularly, have weak coordination and
interaction, and in many cases their functions overlap. WAP can begin addressing the issues of sector
coordination at local level to create evidence for its advocacy for effective coordination mechanism.
Sector finance – There is no single sector financing plan available. Sector financing provisions are
covered under various frameworks and strategy documents. Under the Medium Term Development
Framework (MTDF) PKR 28.3 billion have been allocated for public sector environment development
projects during 2005-1010, four times that allocated in the previous period. The Pakistan Water Sector
Strategy envisaged a Medium Term Investment Plan amounting to $8 billion from 2003-2011. Financial
resources have also been pledged under Poverty Reduction Strategy Paper (PRSP), Annual Development
Plans, Education Budget, Health Budget, Economic Affairs Division and other special packages. For
details see “Sector Budget” in Appendix 3. Based on information available, sector allocations are
inadequate, poorly managed, and spread out amongst different implementing agencies leading to poor
coordination and weak sector governance. The sector review section (strategic planning tool) of this CS,
further elaborates blockages and identifies influencing opportunities for WAP.
Institutional arrangements and capacity – Federal Ministry of Environment has been assigned the
leadership role for articulating national vision on WASH related issues. Provincial Ministries of local
government have been tasked with provincial policy making, budget allocation and target setting;
Provincial Departments of Public Health Engineering are responsible for infrastructure building, Local
Government Authorities – Districts, Tehsil/ Taluka and Union Councils– for service delivery and
communities for operation and maintenance of WATSAN services. Provincial Planning and Development
Departments are responsible for coordination and approval of financial grant requests for water and
sanitation from various agencies. In selected large cities, Water and Sanitation Authorities (WASAs) are in
charge of infrastructure development, service delivery and O&M.
Provision of potable water supply and sanitation is covered by a host of government institutions from
Federal Ministries and Departments down to Provincial, District, Tehsil/Taluka and Union Councils. The
Ministry of Water and Power through its Department (WAPDA) is responsible for water resources
development and management. Urban water supplies are the responsibility of public sector water boards
or WASAs controlled by municipality and district government. Pakistan Council for Research in Water
Resources (PCRWR) is partially responsible for filtration of water for drinking purposes. There is no
independent water sector regulator. Public Health Engineering Departments (PHEDs) were tasked to
construct water supply schemes in the provinces before devolution of power and have again resumed this
role after December 2009.
Performance monitoring and accountability – There is no single unified system in place for monitoring the
WASH sector in Pakistan. However, several purpose built instruments and mechanisms are in place to
provide information on specific activities – the NDWP has set the target to establish a system of
Page 16 of 51
monitoring and testing water quality33. The Draft NDWQS and Environmental Protection Agency (EPA)
Standards provide some of the benchmarks for monitoring progress in the WASH sector. Elements of
baseline for monitoring progress in WASH sector are given in National MDGs, NEP, Sustainable
Development Strategy, PRSP, Health Policy, Education Policy, Vision 2030 and MTDF.
Some of the mechanisms for accountability and progress monitoring on ground are Environmental Courts
and Water and Sanitation Committees (WASCOs) established by various tiers of government. Freedom of
Information Ordinance 2002 provides legal space for Civil Society to effectively play its role as a
watchdog, highlighting WASH issues. At provincial level, PHEDs require DCOs to furnish project wise
implementation progress and P&D departments have set up District Review Committees (DRCs) headed
by District Nazims to review the progress of all schemes included in Annual Development Plans (ADP);
submit a monthly progress report containing scheme wise expenditure, physical achievements and
provision for monitoring of projects by community monitoring teams, elected representatives, district
planning department as internal monitors and P&D department as external monitor. Provision is also made
for third party validation where required and attachment of accounting and auditing staff to DCO for audit
checks before releasing payment.34 Under Local Government Ordinance (LGO) for devolution of power to
local government provisions were also made for external oversight bodies e.g. Monitoring Committees at
Union Council, Tehsil/Taluka and District levels, Accounts Committees and Village and Neighborhood
Councils. Citizen dispute resolution mechanisms were established in the form of District Ombudsman (Zila
Mohtasib) and Musalihat Anjuman (Committee for amicable dispute resolution)35. However, there is no
single coordinating mechanism in place for the WASH sector as a whole. WAP’s input in the National
Sanitation Action Plan will seek to address this blockage. Existing monitoring mechanisms are not used
regularly for providing feedback on sector progress and preparing remedial measures. At local level free
access to information is still not possible in most of the cases. WAP will need to activate and use the
government’s monitoring mechanisms to strengthen the participation of WASH right holders in ensuring
the effective use of resources and improving WASH indicators.
33
34
35
National Drinking Water Policy 2009
Government of Sindh-Planning and Development Department, District Planning Manual, Karachi April 2005
WSP Field Note Empowering Citizens’ Participation and Voice June 2007
Page 17 of 51
Sector review — Strategic planning tool
Sector Building Blocks
Sector and Sub-Sector Analysis
(water, sanitation, hygiene)
Identification of Sector
Blockages (in order of magnitude)
1. Sector policy/ strategy
Approved water and sanitation
policies in place, strategies and
action plans on sanitation being
developed in some provinces (details in
Policies adequately address the critical
challenges faced within the sector but
are inadequately rolled out and not
effectively implemented
1.1 No clear processes have been
designed and followed for
community mobilization for
WASH by line agencies
responsible for building
infrastructure and delivering,
operating and maintaining
water and sanitation services
Sector Review “Sector policy/ strategy” above
and Appendix 3, section 3.3 “National and
Provincial WASTSAN Policies, Strategies and
Programmes”)
2. Sector coordination
Several fora exist for sector
coordination, and information sharing
sharing (details in Sector Review “Sector
coordination” above and Appendix 3, section 3.4
“Sector Coordination Mechanisms” )
Lack of effective vertical and horizontal
coordination between various
government agencies at different levels
(National, Provincial & Local), and
government and CSOs (especially
CBOs).
Rank36
WaterAid Opportunities for
Influence (policy and practice)
(definition of strategic objectives)
Create awareness and build capacity
of masses to engage with duty bearers
for their WASH rights
Strategic Links to other
agencies
Partner with other national level
stakeholders like UNICEF, WSP,
RSPN etc.
Support the development of action
plans of WASH policies
Lobby for quick approval of draft
sanitation strategies
Build CBOs’ capacity to develop and
implement local development plans in
collaboration with government
agencies according to government
approved policy guidelines.
Appendix 3)
2.1 Split Mandate
Undertaking research and
documentation
Existing sector networks, CBOGovernment Forum
2.2 Unclear roles and
responsibilities
Improve knowledge sharing & role
clarity of various agencies to facilitate
coordination between them
2.3 Unwillingness to share
information
Arrange technical and social
guidance for local government and
non government partners through
Support Organizations (Support Org.
Strengthen existing coordination fora
Support development of local CBOGovernment Forum for collaboration in
WASH sector
3. Sector finance
Funds for sector financing available
in various pockets
No comprehensive Sector Financial
Plan available
(details in Sector Review “Sector Finance” above
and Appendix 3, section 3.5 “Sector Budget”)
Unavailable analytical data on sector
Financing in WASH
Under spending of allocated budget in
general, overspending and
overdevelopment of infrastructure in
some areas and abandoned and
dysfunctional schemes in others.
Though funds may flow smoothly,
prioritization of schemes and quality of
work may be questionable
36
3.1 Weak financial planning and
information sharing by key
government agencies
Conduct research studies on sector
financing
Academia willing to support work
on financial analysis
3.2 Weak trust and cooperation
between key partners
Build trust between partners through
technical and social guidance
WaterAid supports local partners to
develop demonstration models.
Build partners capacity on budget
analysis, tracking & advocacy to
engage with relevant service providers
Traffic lights indicate at a glance the severity of each sector blockage: Green = minor constraint; Orange = significant constraint; Red = major constraint
ActionAid Pakistan has begun
work on Budget Advocacy in other
sectors
Page 18 of 51
WAP partners and other CSOs
Sector Building Blocks
Sector and Sub-Sector Analysis
(water, sanitation, hygiene)
Identification of Sector
Blockages (in order of magnitude)
Lack of financial sustainability of WASH
services
3.3 Insufficient cost recovery due
to weak participation of
beneficiary communities
especially women and
vulnerable groups. Criteria for
component sharing not being
followed.
4. Institutional arrangements and
capacity
Roles of various partners need to be
clearly understood.
Ministry of Environment – the focal
point for national policies, plans and
programs for WATSAN is receptive
to input and support
Identification, budgeting, designing,
building and operating WATSAN
services done by different government
departments with little interaction and
consultation, leading to significant
number of dysfunctional and
abandoned schemes
WAP’s partner – OPP, works closely
with government by providing
technical support, while others such
as IRSP help in building capacity
Separate (uncoordinated) entities
established in provinces to address
WASH issues
(details in Sector Review and Appendix 3, section
3.6 under “Institutional Arrangements and
capacity”)
Rank36
WaterAid Opportunities for
Influence (policy and practice)
(definition of strategic objectives)
Demonstrate effective cost recovery
based on service delivery models
developed with community
participation
Strategic Links to other
agencies
4.1 Lack of capacity in government
departments to coordinate
with other agencies, mobilize
communities, and spend
financial resources
Initiate and support capacity building
interventions
WSP , Plan Int., district govts.,
Unavailability of Master Plans in Large
Cities and Towns
4.2 Specific WASH training
institutions do not exist at all
levels in the Govt.
Support govt. by linking it to WAP
partners to develop master plans etc.
thru mapping and build their capacities
Some WAP partners like OPP-RTI
and Mauwin
Government & NGOs committed to
MDGs, Water and sanitation for All and
Internal-external development model
for provision of water and sanitation.
4.3 Mechanisms for local
participation not followed
Develop the capacity of Government
agencies for community mobilization
WAP links government agencies
with Support Organizations
Continued support for government
planning processes
Promoting internal external
development model through local
partner organizations
Government and NGOs complement
each other and can create space to
work together for improving WATSAN
indicators
Ineffective guidelines –
mobilization done thru
notification but not thru
process
Support partners and other CS players
through training
Very few govt. depts.. consult
communities in planning WASH
activities
5. Performance monitoring and
accountability
Standards, environmental Courts,
Committees and Ordinances
(details in Sector Review and Appendix 3, section
3.7 under “Performance monitoring and
accountability”)
Various oversights, monitoring and
reporting mechanisms have been
created at National, Provincial and
District level but there is no common
MIS, but planning for one is underway
5.1 No Action Plans, indicators,
and MIS in place sector
information
Activating and engaging government
agencies at various levels to improve
planning, monitoring and reporting
UNICEF, WSP and Civil Society
partners like RSPN, PLAN,
FANSA to influence government
agencies
Existing mechanisms have limited
capacity and due to narrow base of
organized communities, reported
information cannot be verified,
questioned, analysed and used for
government accountability on a wide
scale
5.2 Lack of participation by
national NGOs and
communities in monitoring,
reporting and performance
assessment
Building trust between government
agencies and CBOs for joint
monitoring
Support Organizations to enhance
capacity of various government
agencies for participatory
monitoring
Page 19 of 51
D) Stakeholder analysis
Key stakeholders in the WASH sector are government, local communities, donors and international and
national NGOs. The federal ministry of environment is responsible for preparing the national policy
framework and plan of action. Provincial ministries of local governments are responsible for preparing
provincial strategies and plans of action, provincial planning and development departments are responsible
for financial coordination and budget allocations and provincial PHEDs are responsible for constructing
physical infrastructure. Provision of service delivery is the core function of WASAs in big cities and of tehsil/
taluka/ town municipal administrations (TMAs) in small and rural areas.
Though national and provincial policies and plans call for community participation at all levels, WASAs and
TMAs have limited capacity to engage local communities in identification of schemes, preparation of low cost
solutions for development, operation and maintenance of WATSAN services and paying service charges or
taking over O&M responsibilities. As a result, a large number of donor assisted schemes in the sector have
been abandoned. Effective community mobilization by government depends on the scale of effective CBOs
active in the WASH sector. Maturity, effectiveness and scale of operation of CBOs in turn depend on the
existence and outreach of support organizations. WAP can strengthen the role of CBOs with the help of
leading support organizations like OPP, URC, IRSP and RSPN to enhance its impact (details in Appendix 3).
Donors provide financial assistance to the government and NGOs; support research and advocacy on policy
frameworks, establish quality standards and regulatory mechanisms in the WASH sector and provide
technical support and guidance to government and CSO. WASH indicators are much lower than the sector
potential because sector players are not playing their parts effectively. This calls for a strategy to bring these
partners together and engage them through demonstration and evidence for optimal use of their human,
financial and technical resources. Component sharing approach for improving WASH indicators on the basis
of partnership building between right holders and duty bearers offers the most effective way of building on
the strengths of all these partners for better sector performance.
Pakistan civil society has recently faced many challenges, but despite these it has met with tremendous
success. The recent lawyer’s movement and the role media played was instrumental in bringing about the
restoration of the Chief Justice and supporting basic rule of law in the country. This movement created social
and constitutional awareness among the general public, and also contributed towards creating a favourable
environment for CSO. This has opened the doors for pushing the human rights agenda including access to
basic WASH services.
During this CS period, WAP will develop multi-stakeholder partnerships with sector stakeholders including
the GoP (Ministry of Environment, Ministries/Departments of Health and Education, Pakistan Council for
Research in Water Resources, Provincial WATSAN cells, PHED, P&D Department, WASAs etc.) UN
institutions & INGOs (WSP, UNICEF, WHO, UN Habitat, USAID, Plan International, ActionAid, DFID, EC),
CSO & networks (Rural Support Programme Network, Pakistan Institute for Environment-Development
Action Research), media community and academia (COMSATS, Lahore University of Management
Sciences, University of Engineering & Technology Lahore, Sindh Agriculture University, Mehran University of
Engineering and Technology etc.).
E) ‘SWOT’ analysis (Strengths, Weaknesses, Opportunities and Threats)
Based on input from WAP staff, consultations with government stakeholders and key civil society players, the
following points emerged:
Strengths and weaknesses
Government agencies responsible for development of infrastructure, service delivery and operation and
maintenance of WATSAN services have significant human and financial resources and regulatory
mechanisms at their disposal to undertake large scale investments in this sector. However, their limited
Page 20 of 51
institutional coordination and limited capacity to build partnerships and engage communities has resulted in
ineffective use of budgetary resources and poor implementation of government policies (Appendix 3).
NGOs including CBOs and SOs have social mobilization expertise, trust of local communities, community
level technical knowledge and grassroots level networks. WAP partners actively involved in pushing the
national WASH policies forward and successful models by WAP partners on SWM and RWH were all seen
as strengths. However, it was acknowledged that resources at their disposal and scale of their outreach was
extremely limited in comparison to that of the government, hence it was suggested that they should expand
their work by influencing the government through field demonstrations, building infrastructure and deliver
services under the component sharing development model on a large scale.
In the presence of a democratic parliamentary government, adopting RBA can be relatively easier and less
risky. However, in the wake of Pakistan’s involvement in the on going war on terror, development funds
have been massively cut and spent on maintaining peace and security in troubled areas. In addition to
these, the country is facing a severe energy crisis, food shortage, water scarcity and unprecedented inflation
giving rise to social unrest and economic uncertainty.
WAP has gained recognition as a key WASH player at policy level, and has taken the lead in pushing the
SACOSAN agenda and budget advocacy. It enjoys the confidence of the government at various levels and
has extensive outreach through its partners, who are active in implementing the component sharing model
and replicating other innovative models. WAP’s YJFP has generated sufficient interest among other sector
players. WAP’s value addition was seen in its external linkages and ability to bring regional and international
expertise to enhance the capacity of all its partners. However, keeping in view the limited partners capacity
shift from service delivery mode to RBA would be challenging and require internalization of the approach and
capacity building of the WAP staff and partners
Opportunities and threats
Ineffective management of resources by government provides a great opportunity for WA to support the RBA
by its partners to work for effective use of resources. (details in Appendix 3, section 3.8 “Why RBA
Approach"). Successful RBA initiatives in Pakistan have been able to influence the functioning of government
due to common goals and complimentary of means. Government and NGOs share a commitment to MDGs,
water and sanitation for all and the component sharing development model for provision of water and
sanitation. They complement each other’s resources because the government depends on regulatory
mechanisms and NGOs bring in participatory mechanisms for improving service delivery. Success of this
approach depends on the capacity of WAP’s partners to demonstrate their success and engage government
departments. Limited capacity of WAP partners and lack of systematic support and guidance to them through
SOs constitute the single most important threat to scale up WAP’s work in collaboration with the government.
Some additional threats that may affect WAP & its partners include religious extremism, ethnic conflicts,
intolerant behaviors, natural & man-made calamities and on-going war on terror.
During the WAP partners directors meet issues identified as priority were:
• Lack of external sewerage and main trunk lines in both urban and rural periphery
• Poor water quality & non-functional water supply schemes
• Lack of ownership of NSP at TMA & lower tires of the government
• Lack of proper solid waste collection & disposal systems
• Lack of public awareness on hygiene issues
• Violations of WASH/property rights of sanitary workers and inhabitants of Katchi Abadis
Page 21 of 51
Country programme strategic objectives and indicators
WA Global Aims
WAP CSP – Strategic Objectives
Success Indicators
Strategic Performance Indicators
Cumulative number of people practising safe hygiene
A1/1.1: XX (#) WASH initiatives will be
successfully completed by WAP partners
Aim 1
We will promote and
secure poor people’s
rights and access to safe
water, improved hygiene
and sanitation.
A1/1: Support partners to organize
and mobilize poor & marginalized
people to broaden their institutional
base in order to realize WASH rights
Cumulative number of people using a functional and protected water source as
per WAP water quality guidelines
Cumulative number of people linked to an affordable and functional sanitation /
treatment facility
Women in XX(#) of WAP areas of operation enabled to deal with menstrual
hygiene issues safely and with dignity
A1/1.2: XX(#) poor people and civil
society organizations will actively claim
WASH rights
XX(#) community organizations with representation of youth, women, poor and
marginalized people, formed and involved in partners WASH decisions in X (#)
project areas
Work expanded to include sanitary workers and religious minorities
XX(#) of community organizations received funds/ schemes related to improved
WASH facilities for their respective villages
A1/1.3: XX (#) population in WAP areas
are aware and practicing safe hygiene
A1/2: Support partners to develop
and promote affordable, sustainable
WASH solutions
A1/2.1: XX(#) WASH solutions will be
identified and tested in WAP areas of
operation for adoption and replication
XX % of the population in the target areas washing their hands with soap or ash
after contact with fecal matter and before handling food
Affordable solutions for waste water treatment (sewage treatment plants –STPs)
adapted in 5 villages in all 3 WAP programme areas of operation (2+2+1)
RWH scaled up in Sindh in X(#) arid villages by local government
Local methods of RWH and Water conservation identified in X(#) Punjab and 5
NWFP programs
Design of affordable solutions supported by academia
Community managed SWM model replicated in five UCs through local
government support
A1/2.2: Communities in WAP areas of
operation will be using appropriate WASH
solutions more effectively
Evidence of citizen’s participation in WASH related decisions at all government
levels
Evidence of improved capacity of local organizations to participate and influence
decision making related to WASH
Community members from socially excluded groups will participate in the
designing, implementing and monitoring of WASH solutions
Environment in CLTS target areas free from fecal matter
XX(#) Solid Waste Management projects effectively being implemented by
community
Sewage Treatment Plants (STPs) constructed, used and managed by
communities in 50 villages (20+20+10)
Nadi/bio-sand filters used by XX(#) households to curb negative health impacts
of unsafe drinking water
• 20% population in four settlements of Lahore and 9000 people of two
villages in TTS
• XX(#) in Sindh
Improved roof top RWH and household level water fetching options adopted by
communities of 20 villages of arid region of Sindh
Page 22 of 51
Aim 2
A2/1: Support government and
service providers to deliver
participatory WASH programmes
We will support
governments and service
providers in developing
their capacity to deliver
safe water, improved
hygiene and sanitation
A2/1.1: Enhanced capacity of local
government institutions will result in
improved WASH coverage in WAP areas of
operation
Staff of 20 TMAs proficient in mapping and documentation processes related to
WASH projects
Master plans being used by TMAs in 3 districts of Punjab, Sindh and NWFP
A2/1.2: XX(#s) TMAs will involve local
communities in planning and
implementation of WASH projects
TMAs (staff) understand and employ participatory approaches in TMAs in 3
districts of Punjab, Sindh and NWFP
Increased number of knowledge products, tools and events designed and
shared with government and service providers by WAP
A2//1.3: WAP will support XX(#) local
governments and CSOs to implement
WASH solutions
Increase in acquired number of knowledge products, tools and facilities from
government and service providers being shared with key partners
Information related to XX(#) tested WASH solutions shared amongst various
government departments for scaling up
Government staff visit project areas to learn about tested WASH solutions
XX(#) scaled up WASH solutions in WAPs 3 programme areas by local
government
Technical core group fully functional in Punjab
A2/2: Call for improved sector
governance and support effective
sector monitoring to lead to
improved performance and results
A2/3: Influence and support
government to prioritize WASH and
implement existing policies
A2/2.1: Research findings and improved
statistics will address data consistency
issues and facilitate effective decision
making
WASH data reconciliation as a result of WAP’s support to government
institutions
XX(#) Local governments use agreed performance monitoring indicators and
data collection tools
Two research studies conducted on emanating WASH issues.
A2/2.2: WAP will contribute to the number
of joint campaigns carried out by the WASH
alliance to influence govt. to resolve the
emerging issues related to WASH
Two joint campaigns on emerging issues of water and sanitation launched,
involving WASH alliances, networks and partners
A2/2.3: WAP’s input will contribute towards
the number of government commitments
monitored, reported and fulfilled
(SACOSAN, MDGs and National WASH
policies)
Evidence of WAP’s engagement with strategic alliance partners such as WSP,
UNICEF and national level WASH platforms such as CLTS core group,
PACOSAN and WASH donors coordination group
A2/3.1: XX(#) SACOSAN commitments will
be integrated into the national plan of
action and other programmes
Documented evidence of commitments not being met highlighted through media
stories by WAP media fellows
An independent CSOs alliance is active and monitoring government
commitments
Traffic lights paper periodically updated tracking SACOSAN commitments
A2/3.2: WASH allocations of X(#) district
government budgets will be utilized more
efficiently
Annual budget tracking reports of selected districts and TMAs produced by 5
WAP partners
A2/3.3: WAP partners will have influenced
government departments to act on a
number of pending actions necessary for
WASH related policy implementation
Provincial WASH strategies and action plans developed and approved
Strengthened capacity of X(#) partner organizations on budget advocacy
through development of a budget advocacy primer
Improved and efficient utilization of WASH allocations in X(#) district budgets
District level water quality labs established
Page 23 of 51
A2/3.4 Provincial and federal government
will have comprehensive action plans in
place for the implementation of Water and
Sanitation policies
XX(#) people, especially marginalized groups gain access to water and
sanitation after implementation of action plans due to WAPs influencing work
XX(#) TMAs and district governments facilitated to develop action plans
XX(#) WAP partners and communities involved in preparation of provincial
action plans
XX(#) school WASH facilities improved
A3/1: Promote and advocate for
WASH to be integrated into health
education and media in the urban
context
Aim 3
A3/1.1: % of SMC funds in 5 districts will
be effectively utilized to improve WASH
facilities in schools
XX(#) schools integrate WASH messages in their regular syllabus
A3/1.2: WASH reflected in X(#)
government Health programmes
5 District health plans reflect WASH activities e.g. Improving hospital sanitation
and hygiene, ensuring water quality standards
Hygiene Component strengthened by providing training and educational material
to LHWs
A3/1.3: Higher political commitment will be
reflected through the integration of WASH in
National Plans
We will advocate for the
essential role of safe
water, improved hygiene
and sanitation in human
development
XX(#) pupil benefited from improved WASH practices
A3/1.4: XX(#) INGOs engaged in poverty
reduction and women empowerment will
have included WASH in their programmes
A3/1.5: XX(#) journalists will be contributing
to highlight WASH issues in the media
Integration of WASH in Planning Commission’s and Planning & Development
Department’s short and long term plans
Increased number of research papers produced by students / academia on
WASH issues
XX(#) lobbying events carried out with INGOs
Evidence of number of papers having WASH on their agenda, produced by
INGOs to influence the poverty discourse
Newspaper space given to WASH issues increased through WAP YJMF in
media
Increased number of government actions taken on WAP YJMF stories
Media highlight public demand for improved WASH services
A4/1: Establish WaterAid’s profile in
Pakistan as a leading WASH
organization
A4/1.1: Sufficient resources (financial and
human)will be available
Aim 4
We will further develop as
an effective global
organisation recognised
as a leader in our field
and for living our values
A4/1.2: WAP staff will be recognized as
experts in the sector
A4/2: Develop effective systems for
learning, accountability and
transparency
A4/2.1: Improved performance results
evident through WA global surveys and
internal audit reports
Diversified income sources explored from external donors
Understanding and professionalism of WAP staff improved and recognized by
sector players
Increased number of invitations seeking WAP staff as resource persons at
WASH events
Increased number of consultations sought by government of WAP
Increased implementation of innovative ideas learned from WAUK and other WA
Country Programmes in the Region.
Improved technological facilities at work
Improved monitoring mechanism in place
Evidence of reciprocal integration between programme and advocacy
Evidence of a transparent HR system
Improved systems of information sharing within WAP and with partners evident
Lessons learned from region promoted and adopted locally
Page 24 of 51
A4/3: Invest and develop a diverse
team, wherein each one contributes
towards maximizing WAPs impact
A4/3.1: WAP will develop a team
comprising of people from mixed
backgrounds to enrich learnings.
Male – female ratio within WAP team improved; partners also encouraged to do
the same
Increased number of staff from different ethnic / religious backgrounds engaged
/recruited
Leadership skills enhanced with special focus on female staff.
A4/3.2: WAP staff will practice and
demonstrate cultural tolerance towards
each other allowing them to grow as a
sensitive and mature team.
Improved gender and cultural sensitivity demonstrated by all WAP staff
A4/3.3: Develop and improve staff
capacity, technical and leadership roles
building for a healthy staff and environment
Evidence of feedback being used to improve self
Evidence of improved technical skills and leadership qualities.
Personal safety and work life balance demonstrated.
Page 25 of 51
Human Resources
In order to incorporate the changes in the new global strategy and subsequently the changes in this CSP;
WAP will need to acquire some skills that were not previously envisaged. As the programme expands, and
monitoring improves in line with the new PM&E systems, programme officers will be required in the field, and
managers will be more involved in capacity building of partners and government staff.
It is proposed that the team be increased from twelve (as of 2009-2010) to nineteen (as of 2014-15). The
seven members proposed addition will be as follows:
Year 1 (2010-2011) Q1:
Year 2 (2011-2012) Q1:
Q2:
Year 3 (2012-2013) Q1:
Year 4 (2013-2014) Q2:
Q3:
Year 5 (2014-2015) Q1:
Coordinator - Fundraising
Programme Officer – Equity & Inclusion
Programme Officer – PM&E
Programme Officer – Punjab and Sindh
Programme Officer – National (P&A)
Programme Officer – Finance
Programme Officer – Sindh
1
1
1
1
1
1
1
During this period WAP will also develop an Internship programme, through which programme managers will
be able to access short term assistance in web research, documentation etc.
The figure below indicates the proposed staffing structure:
Existing positions
Positions to be filled during 2010-13
Positions to be filled during 2013-15
Country Representative
Pamela Rodrigues
Manager Finance
Waqas Pervaiz
Programme Manager
National
Abdul Hafeez
Programme Manager
Sindh
Munawar Hassan
Programme Manager Punjab
Sohail Nazir
Finance Officer
SUN
Qurat-ul-Ain
Programme Officer
Communications
Sandra Barrows
Programme Officer
PM&E
2011/12, Q2
Programme Officer
Equity & Inclusion
2011/12, Q1
Finance Officer
Partner Monitoring
Zahid Bin Jalal
Coordinator
Fundraising
2010/11, Q1
Finance Officer
2013/14, Q3
Programme Officer
2013/14, Q2
Coordinator
HR/Admin
Leslie U’Chong
Asst. Admin Officer
Zubair Ilyas
Programme Officer
2012/13, Q1
Driver
Muhammad Khurshid
Programme Officer
2014/15, Q1
Office Support
Raqeeb Hussain
Figure 3: Organogram - WaterAid Pakistan Country Office
Human Resource Planning
As per WAP’s SMT requirement, HR has analyzed the demand for staff required during the new CS period,
in conjunction with work processes defined in the CSP and MPB documents. Staff will be brought on board
as per the requirement of the team, and availability of resources, through transparent and accountable
screening and selection processes. In practice all aspects of equity and diversity, including the male-female
ratio in the office will be taken into consideration to ensure a conducive working environment.
Page 26 of 51
WAP is in the process of launching an internship and volunteer program through development of proper
objectives and ToRs. This programme will aim at reaching out to students and academia in order to highlight
WASH issues.
Communication, Team Building, Leadership and Management
As WAP has already embarked on developing a robust appraisal system amongst its staff by initiating the
360 degree feedback process, it will work on further refining it during this CSP period. WAP will also focus
on developing its IT communication network by updating hardware and systems to cope with the increased
demand from WA’s communications and finance departments.
Leadership, management and other technical trainings, that will enhance the way WAP operates, are being
identified and explored, and comprehensive programs will be chalked out for each individual’s needs. These
will all contribute towards WA’s global aim 4, and WAP’s corresponding objectives.
Pay and Reward
WAP will conduct a salary review as per HR policy during this period. It is suggested that WAP HR be
involved to a greater extent in carrying out this review than the previous one conducted. He will coordinate
with similar organizations in the country and refine all Job Descriptions to ensure a fair comparison.
Health, Safety and Well-being
All WAP staff are insured as per HR policies (health, travel, life), and coverage for critical illnesses is being
explored by WA. WAP has also enrolled all staff into the Employees Old Age Benefit system that will render
them eligible to pension after 10 years of membership. HR will continue to play an active role in the security
forums, which have proved useful in providing timely security updates.
Capacity building of WA partner staff
WAP has encouraged its partners to develop systems of their own and has conducted sessions on
developing HR manuals; improving finance and accounting systems and report writing, however, due to high
staff turnover these sessions will need to be repeated at regular intervals. For the same reasons, sessions
on community mobilization including participatory approaches and examining low cost options (technical) will
also be repeated. Once SO begin playing their role as envisaged in the new CS, some of these trainings will
be carried out by the SO’s. Partners will be supported in further developing their documentation and policies
as and when required.
In line with WA’s global strategy WAP will conduct trainings on E&I, RBA, water quality monitoring and
budget tracking for staff as well as partners.
Besides these mentioned above, WAP will share information on policies and how these are implemented on
a regular basis with all partners and other interested stakeholders.
Financial resources
5 Years Budget Projection (Amounts Million Pak Rupees)
Financial Plan
Essential
Desirable
Ambitious
Projected (in millions)
2010-11
2011-12
2012-13
2013-14
2014-15
TOTAL
90
94
98
126
138
143
146
165
171
145
177
184
174
219
223
681
793
819
Page 27 of 51
CSP BUDGET
Amount in (millions) Pak Rs.
250
200
150
100
50
0
2010-11
2011-12
2012-13
2013-14
2014-15
CSP (II) Period
Essential
Desirable
Ambitious
• New partners / projects
Shifts in the country strategy in accordance with what the new aims of the global strategy bring; such as
the need to mobilize resources, RBA / E&I, more effective monitoring and evaluation, improved
technology for low cost and appropriate WASH solutions etc. WAP will need to engage a new set of
partners and professionals with more expertise, than it currently has in its team. During this CS period
new partnerships will be explored to achieve greater impact.
• Expansion in WAP activities
WAP along with its regular activities will also explore new geographic and thematic areas of work as
highlighted in the situation analysis like equity and inclusion and climate change. WAP will also widen its
partnership base to include academia, health, education and R&D players.
• Hiring of new staff
It is proposed that staff strength be increased from 12 to 19 during this CS period as indicated in HR
section, especially as WAP seeks more contracted income.
• Contracted funds from EC
WA has submitted a proposal to EC for funding of a partner - IRSP in Mardan, Khyber-Pakhtunkhwa. The
concept note has been accepted by the EC, and once the contract is signed IRSP will receive funding for
a period of 3 years on a grant matching basis (expected April 2010). EC will pay 75% of the total project
and WA will provide the remaining 25%. Total cost of this project is €749,982.
• Envisaging more contracted / donor funds along with unrestricted funds
Along with the above mentioned EC funding, WAP will also begin fundraising activities to attract funds
from bilateral and international donors for the WASH sector in Pakistan.
Risk management
During the risk management planning process, the following risks and actions were discussed. These risks
are divided mainly into two broad categories:
Internal risks
These mostly cover risks related to strategic, operational, program, financial, legal compliance and
regulations, which can be mitigated through alternate plans and regular situation analysis. Strategic risks
include key shifts from WA's new global strategy 2010/15, inconsistent ownership of WAP’s CS, change in
focus of existing partners (program / geographical); risks that may take the entire programme off track.
Operation risks include non compliance with WAP’s systems (finance, communications, HR, IT, water quality,
fundraising, PM&E, etc), staff security & protection, inefficient management of contract funding and staff
turnover. These risks cause hindrances initially and if not addressed later turn into major problems.
Financial risks include non compliance with WA's accounts & financial standards and guidelines, loss of
cash/ embezzlement / fraud, non compliance with audit observations, improper utilization of funds by
partners, non compliance with WAUK and donor reporting requirements, loss of assets or property, legal
Page 28 of 51
compliance and regulatory risks includes MoU with Economic Affairs Division, Govt. of Pakistan revoked,
non-compliance of taxation rules set by the Federal Board of Revenue.
Program related risks include non achievement of targets and plans, and WAP being publically criticized by
disgruntled partners.
External risks
The team identified the following as external risks - political instability, break down in law & order situation
including terrorist strikes and bomb blasts, economic instability, reduction in development expenditure by the
government, major earthquakes, floods, drought, energy crisis, tsunami, change in donor priorities / funding
environment, change in Govt. systems and policies which may impact the sector and approaches used by
WA (RBA, E&I, etc). It is difficult to completely tackle these external risks but some alternate plans were
discussed to reduce the impact of these risks on WAP.
The CR together with the SMT will be working together with support from the regional desk to regularly
identify, review, and develop mitigation strategies. For a detailed risk management plan including the current
controls, likelihood of occurrence of these risks and plan of action to handle these risks please refer to
Appendix 4.
Page 29 of 51
Monitoring and evaluation framework
A detailed monitoring and evaluation framework is developed wherein WAP will adopt the following monitoring, evaluation & learning mechanisms, along with proposed schedules. The expected outputs,
exact dates can only be finalized closer to the event and in consultation with partners.
No.
1
M & E; Learning
Purpose
Mechanisms
Annual Review of a. Measure progress against
Country
indicators set for each strategic
Programme for
objective in the MPB
Annual Report
b. Feed findings into annual report
c. Verify beneficiary/ user numbers
set in partner plans/ programme
plans/ MPB
How to do
When to do
a. Review conducted to be based on partners’
quarterly reports, staff’s quarterly visit
findings, and MPB
b. Duration max 10 working days.
c. Planned by SMT
a. Q4 (without delay)
Who will be
responsible
a. SMT
Output
a. Crisp10-15 page (max) annual review
doc. with critical analysis of the progress
of country programme against core
indicators.
b. Detailed account of achievements,
success stories and failures during the yr.
c. Financial mgt. details
2
Midterm Review
(MTR) of CSP
a. Measure and review achievements
of CSP objectives half way down
the road against total CSP span (5
years).
b. Review effectiveness of CSP
indicators and revise if needed
a. Ream will comprise of 2 ext. & 1 int. member
b. ToRs prepared by CR in consultation with
SMT and shared with head of programme
effectiveness unit
c. Duration max. 15 working days.
d. Extra days added with consent of CR & HoR
a. After 2½ years of
CSP’s launch.
b. Exact time agreed
to by CR & HoR
a. SMT led by
CR
b. Regional head
of programme
effectiveness
unit
a. 10-15 pg review report with in-depth
assessment of CSP objs. and indicators
b. Clear recommendations for changes in
approach, strategic choices, resources,
monitoring methods, organizational
capacity etc. for the subsequent years.
3
Extensive
Evaluation of
Country
Programme
a. High level assessment of Country
Strategic Plan (CSP), evaluating its
efficiency, effectiveness and
relevance to its contribution in I)
Increased access of poor to
WASH services & rights, II) Impact
on national WASH policies & III)
WASH sector capacity
b. Recommend improvements based
on findings of CSP period
achievements
a. Five member team comprising of::
b. One leading evaluator preferably from WASH
sector
c. One programme advisor from Asia Region
d. One HR/Admin specialist
e. One Finance Advisor
f. One M&E Coordinator of CP
g. ToRs prepared by SMT of CP three months in
advance of evaluation and shared with heads
of Asia Region and Programme Effectiveness
Unit for feedback
h. Duration max. 21 working days.
a. After fourth year of a. SMT
CSP launch to feed b. Regional head
findings to next CSP
of programme
b. Q2 Y5 of CSP
effectiveness
launch. However,
unit will assist
may be carried out
in coordination
earlier depending
c. HoR will give
on the situation of
final go ahead
CP and
programmatic
preferences of the
SMT
a. 15-20 pages in depth evaluation report
with critical account of strategic
interventions of past CSP.
b. Highlight key learnings from ending CSP
c. Propose future potential areas of work
d. Recommend potential arenas of
improvements from programmatic,
financial and organizational perspective.
4
Partners
Monitoring
a. Monitor and review partners’ work
progress periodically
b. Provide strategic guidance to
partners in bringing effectiveness
and depth to their work
c. Maintain link between country’s
strategic vision and partners’
grassroots level interventions
a. Programme managers will monitor the
a. End July, Nov and a. Programme
partners physically 3X a year.
March
managers of
b. Monitoring will be based on partners’ quarterly b. Number of
respective
reports
monitoring visits
prog.
will depend on
c. Programme manager prepares check list to
b. CR to ensure
workload of prog.
ensure completeness of monitoring process
frequency and
mgr., level of
d. Duration min. two working days per partner
effectiveness
support required by
including field visits to communities
of monitoring
partner and
requirement of the
programme like sixmonthly review etc.
Page 30 of 51
a. Crisp monitoring report as per format
developed by M&E focal person and
agreed upon by SMT
b. Programme effectiveness at grassroots
levels
c. Bridging the gap between partners/
communities and WAP team
d. Timely support & strategic guidance to
partners
e. Identification of gaps in partners work and
rapid measures for improvement
No.
M & E; Learning
Mechanisms
Purpose
How to do
Who will be
responsible
When to do
Output
c. Missing any
monitoring visit to
be discussed with
CR in advance and
decided mutually
5
Six Monthly
a.
Review of Annual
Plan
b.
c.
Identify necessary changes to
country’s annual plan both
programmatically and financially
Keep the country programme
focus aligned as envisaged at the
time of planning
Help partners track progress at
mid year against Work Plan
a. Review project, programme and MPB in team a.
and individually by programme managers
b. Re-check with partners (in case of changes
in project plans) by visiting, or through emails/
phone
c. Highlighting changes in plan and share with
regional team for approval
Early Oct
a.
Respective
Managers
and CR (as
the case
may be)
6
Annual Planning
Process
a. To plan and budget the next year’s
activities
b. To determine specific objectives
and their indicators for the
assessment of WAP’s work
c. To ensure efficiency and timely
compliance of the programme
interventions
d. To align WAP’s work with changing
needs of the communities and to
respond to emerging issues
a. SMT defines course of planning at CP level
with suggestions from region (if any)
b. Programme Plans ( MPBs) will be based on
the change objectives set in proj. plans .
c. The CP MPB reflects objectives of each
programme
d. Programme mgrs. review their partners
Proj.Plans and submit to CR for approval
e. Programme Plans reviewed and approved by
CR
a. Process to prepare
partner proj.plans
for MPBs will begin
in Nov.
b. MPB of the CP
sent to region in
February for
approval
7
Monitoring &
Support for
Donor Funded
Project
a. To ensure timely accomplishment
of output based activities of the
project.
b. To keep the project mainstreamed
within the overall CP
c. To fulfill donor requirements for
monitoring & support (if any)
a. The relevant prog. mgr (for the initial years of
the CSP period) or the M&E officer will be
responsible to monitor the donor funded
projects
b. If a specific monitoring requirement of the
projects is received from the donor, it will be
followed; if not, then WAP will use its own
M&E tools for monitoring the project
c. Period of field visits and mode of reports to be
reviewed will decided by SMT as per nature,
scope and mandate of the project
d. Monitoring reports will be shared quarterly (if
possible) with SMT for feedback
a. The monitoring
a. Project
mechanism, and
coordinator
b. Relevant
timeframe will be
programme
decided as soon as
donor funded
manager
project is launched. c. CR
b. It will be ensured
through project
monitoring that the
partner gets
support in due time
(when they need it)
a. SMT
Page 31 of 51
a. A well reviewed plan (Project,
Programme or MPB) with changes
highlighted
a. Well defined multi year plan & budget
(MPB), programme plans and project
plans with clear objectives of change and
relevant indicators to design future
interventions in alignment with CSP
b. An opportunity to review past work and to
plan for future with clearer vision and
objectives
c. Prioritization of issues and interventions to
avoid overlaps and mismanagement of
resources
a. Project outputs are achieved in time and
targets are met as per donor requirements
b. Better documentation of the project
activities and achievements
c. Possible realignment or review of the
project objectives if the monitoring results
so suggest .
d. Due to involvement of relevant PM & SMT
in reviewing the progress it will remain
mainstreamed with the CP
APPENDICES
Page 32 of 51
Appendix 1
CS planning process
The process began in August 2009, where prior to the Asia RMT (Sept.) the WAP SMT attended a brief
presentation on the salient features/ changes in the International Strategy. Based on current work plans and
other commitments of senior staff, it was decided that a consultant be engaged to help in the development of
WAP’s CSP. The CR and Asia Region Advocacy Advisor met with the Consultant to discuss the brief, and
material and other guiding documents were handed over. The Consultant prepared an outline based on his
understanding of the process, which was shared with the SMT. Another meeting was held in which the WAP
SMT clarified points and voiced their areas of concern related to the process and some gaps in the previous
CSP. This helped ensure that the Consultant and WAP team were on the same track. Based on the agreed
outline of the process the consultant started a review of key documents for situation, sector and financial
analysis. The consultant also participated and interacted with WAP partners for three days at the WAP
Partner’s Director’s Meeting (28th Sept – 1st Oct).
The following questions were put forward to all partners, in order that responses feed into the Situational
Analysis:
1) List what you think are the 3 main WASH related issues that affect poor people most in your area of
operation. You may categorize them into Internal or External issues.
2) What major interventions do you plan on continuing with or introducing to address these issues?
3) By March 2011, what milestones would you set to achieve the above targets?
4) Since we last met at the Director’s meeting in Sept. 2008, what would you consider to be your 2 key
achievements? Indicate the challenges you faced and these were overcome
5) Identify specific areas of support (other than Rs.) required from WAP.
Taking advantage of this meeting, the consultant conducted a SWOT analysis with WAP and its partners.
A parallel process of reflection, discussion and documentation was started by WAP’s SMT, consisting of 2
steps as follows:
Step 1: Self assessment, tailoring the process and planning.
Some members of the SMT met to discuss the way forward, and compared WAP’s CSP(I) to the
International Strategy and identified key areas that would need to be reviewed and rewritten to align CSP(I).
The SMT also divided areas of work between themselves, and discussed how and when these would feed
into the process. The team met with the consultant to agree on a timeline, identify stakeholders, and plan the
overall process.
Step 2: Looking back–reflection over the last strategic period.
During this step WAP’s SM met for a one day reflection session to determine the achievements, challenges,
key shifts and lessons learned during the last strategic period.
Facts, ideas, and insights helped in conducting analysis of various segments of the context and identifying
the options for future course of action to select the most appropriate strategic vision. It culminated in
preparation of the first CSP 2010-2015, (0) draft.
During this process the WAP SMT identified some achievements and challenges which were later reinforced
by partners during the consultation process
Key Achievements and Challenges over the last strategic period
The team brainstormed and identified the following:
Achievements
• At policy level WAP has gained recognition as a key WASH player and is seen as flexible by other
strategic partners.
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•
•
•
•
•
A sense of openness and support amongst its NGO partners has increased.
The reporting and monitoring mechanisms now in place, provide WAP and its partners a tool for
transparency and accountability.
The joint monitoring of finance and programme has proven useful and will be strengthened as the
coordination between programme and finance brought clarity and better understanding of how and
where resources were being utilized.
Partnership Agreements given out to most partners based on the team’s assessment have introduced
an element of stability to the programme.
The feedback sessions amongst staff during retreats have played a crucial role in improving relations.
Challenges
• Knowledge management and shared learning needs to improve both internally (within WAP) as well
as externally (partners and other stakeholders). As part of improved knowledge management
inconsistent sector data needs to be analyzed and reconciled, stronger case studies that can capture
actual work and impact, need to be developed and capacity of partners in planning and reporting
needs to be improved.
• The SMT needs to be aware of WASH integration to promote holistic visioning.
• Managers will need to guide partners to build on activities that support each other, develop focus and
involve communities during various stages of planning and monitoring.
• Capacity building initiatives need to be properly assessed and should not be budget driven.
• Engagement with WASH networks needs to improve.
• WAP’s overall planning needs to be more realistic keeping in mind work life balance (WLB), security
issues, requests from WA UK and personal development.
Key Shifts – what has changed in strategic directions, programme and policy interventions and
approaches
CSP(I) has put emphasis on developing systems, assessing existing partners and providing support to
partners Introduction of the new global PM&E system incl. MPB reporting has an impact on how we expect
partners to report. PASFs were replaced by Project Plans, which require more detailed information. SUN has
brought about changes in the type of reports CP staff can use, as well as how bills are processed and
accounts cleared.
Another key shift has been the introduction of sub- programmes (now know as programmes). WAP still has
to grapple with how to move to more thematic (sub) programmes by 2012-13. Water and Hygiene was
introduced in CSP(I) – a shift from urban sanitation.
The Military operation in Swat led to the IDP issue in Khyber-Pakhtunkhwa. WAP shifted funds to
accommodate WASH programme work in IDP camps. Communal violence in Gojra and other similar
incidents would require WAP’s support in the future as well. Contracted funding (EC) amount applied for was
much more than indicated in plans, if this does come through, both WAP and its partner organizations will
need to make some serious adjustments. Regional support (secondment) had to be curtailed due to security
reasons.
Key Lessons (what will continue and what will be different)
Support to partners will continue and increase in some areas. Due to high level of trust within WAP team, all
members were on the same level when it came to dealing with difficult issues, sharing between team must
continue. Transparency and Accountability practices must continue as well as be strengthened where weak.
Partners must be encouraged to remain focused and reflect on work, without changing direction constantly.
Involvement of partner organization staff should increase during planning stages, with a plan to eventually
involve community members as well. Promotion of CLTS must be reviewed. It must not be forced on all
partners.
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WAP should gradually move towards developing thematic plans to replace WAP’s existing project plans.
More planning should go into developing pilots with focus on how these will be replicated, and linked with
relevant governments departments as well as CSO. Other stakeholders should be involved from the start.
Feasibility reports should be included in plans that have any element of infrastructure development.
Sustainability of each partnership should be worked out and clear cut off points should be identifies.
Academia and Research Institutes should be involved in WAP’s work.
OPP approach should be integrated with the RBA approach. We should create space for WA UK driven
initiatives into WAP plans. WAP will cash in more on the WA brand. Media fellowship programme will
continue and expand to other provinces. There is significant space in the existing WASH Policies for carrying
out the activities to be continued by WAP.WAP focus during the new strategic period would therefore be on
strengthening the capacity of partners support implementation of the Policies.
Step 3: Consultation meetings for input into Situational analysis and sector review (also see Appendix 3)
The three programme managers arranged meetings in their respective programme areas, with government
officials, key stakeholders, CSO heads, and partner organizations. Directors of WAP’s partner organizations
were consulted during the annual director’s meeting in Nathiagalli in Oct. 2009. The CS consultations
included individual meetings as well as group discussions.
Discussions revolved around WASH coverage, issues, gaps, challenges and sector capacity; and brought a
different angle of looking at WASH issues mainly from the implementers’ perspective and those involved at
the grassroots level in the management of water and sanitation systems. These consultations helped in
understanding the planning, development and maintenance process of water and sanitation systems in the
provinces and in identifying opportunities where WA could contribute during this CS period.
The SWOT analysis exercise during these consultations also proved extremely useful in obtaining insight on
key issues and hidden opportunities that will help WAP make its country strategy more inclusive and
contextually relevant.
Punjab: Three rounds of consultations were carried out in Punjab; two in Lahore and one in Multan
Sindh: Three rounds were conducted in Sindh; one in Karachi and two in Hyderabad
National: Three rounds were conducted, one each in Mardan, Peshawar and Islamabad. A separate meeting
with the WATSAN cell was held in Mardan, wherein WAP’s consultant sought clarity on the role of the
WATSAN Cell and their involvement in the preparation/allocation of TMA’s or LG department budgets.
Details regarding quality standards of water testing and sanitation standards were also sought, members of
the WATSAN cell also shared information on the environment impact assessment in new projects.
WAP’s consultant facilitated these sessions and over 150 persons were consulted as part of the entire
process.
Step 4: Making strategic choices
Based on the information collected during the various meetings, the consultant put together draft 1, and
shared it with WAP’s SMT. During a 3 day session, the SMT and consultant went through a number of
discussions regarding what would go into the document and what was not considered necessary for the
direction WAP wanted to take. The team referred to the CSP and debated over what should be carried
forward into the CS, to what extent should WAP deviate from its previous objectives, the pros and cons
attached to such decisions and how these would contribute to the global aims. The strategic planning tool
was useful in helping the team make certain decisions. (see appendix 3, section 3.8 for details)
Step 5 & 6: Developing country programme strategic objectives and indicators
The consultant facilitated a session for the WAP team and initially the team developed 9 objectives and 18
indicators. However, very soon, after receiving the global indicators note and draft strategic performance
indicators, the team realized that they were not entirely on track and returned to the drawing board.
Page 35 of 51
Steps 7, 8, 9 & 10: Planning human resources, financial resources, risk management and developing a M&E
framework
In order to keep to the proposed schedule, work on these three documents were broken down and assigned
to three teams. Information was shared, discussions held and draft documents were sent to the consultant,
to input into draft 1 of the CSP. These initial drafts were later reviewed and refined as progress was made
on the overall CS document (draft 8).
Step 11: Drafting process and peer review
The drafting process continued back and forth finally arriving at draft 10 before the team was satisfied to
share the document with others for review. Feedback will be sought from a mix of partners, CSO heads,
academia, sector specialists and government functionaries within the country. The Asia regional team and
country representatives of Bangladesh, India and Nepal will also be requested to feed into this document.
Page 36 of 51
Appendix 2
Projected number of people supported
Projected numbers of people with access to water and sanitation
Punjab
Essential
Water
Sanitation
Y1
Y2
Y3
Y4
Y5
Y1
Y2
Y3
Y4
18,730 19,500 19,650 20,000 25,000 15,000 20,000 23,000 15,000
Sindh
Essential
12,772 12,777 13,062 13,661 14,060 23,083 20,150 17,650 20,568
22,963
National
Essential
Desirable
15,000 15,000
18,000
10,000 13,000 12,000
30,000 48,000 52,000
-
18,000
-
Y5
20,000
Based on the following documents:
1) Calculating the Numbers of People with Access to Water and Sanitation in WaterAid Country Programmes - A Discussion Paper, October 2009
2) WaterAid Users, Adopters and Beneficiaries, March 2006
Beneficiary definitions: Same as global
Page 37 of 51
Appendix 3
3.1 Information for Analysing Stakeholders and Reviewing Sector
3.1.1
Government
Provincial and district government departments
Punjab Local Government Ordinance (PLGO 2001) states thirteen stepped budget making process which if
adopted would ensure transparency and accountability to a large extent. In spite of rigorous training imparted
to the Local Government officials by Decentralization Support Programme on the new devolved system. The
existing budget making process is still practiced as per the traditional pre-devolution system. The
interference of politicians and other influential persons are another factor due to which such processes are
altered time and again. In Punjab it was found by a WaterAid study that budget rules are followed to a limited
extent, stakeholders are not involved, priorities are not fixed according to merit and coordination among
concerned parliamentarians and LG Officials are often missing. There are no stated rules to prioritize water
and sanitation related schemes. Mismanagement, lack of transparency and corruption has been reported in
award of contracts and schemes’ implementation. Changes are continuously being made to the system, but
the overall situation has remained fairly unchanged. It is expected that new local level elections will take
place within the next six months.
PHED which builds infrastructure for drinking water supply and sanitation schemes in all the provinces has
developed clear guidelines on community engagement in all the phases of project cycle. Department
guidelines clearly state that i) a written request from a group of villagers should be submitted to the
concerned Executive Engineer to start a scheme ii) list of technically feasible schemes finalized by PHED in
accordance with district wise quota of Planning and Development (P&D) department should be submitted to
P&D iii) Community participation process should be carried out by PHED iv) Community willingness to take
over Operation and Maintenance (O&M) of the scheme on completion should be assessed37. In practice all
these guidelines are violated. Schemes are identified by MNAs and MPAs, feasibilities are prepared by
department sub engineers without visiting the field in accordance with the rigid criteria of design issued by
PHED and schedule of rates issued by the relevant committee. Cost for (O&M) is worked out without
considering to socio economic conditions of the target community. Costing is very high due to
implementation by contractor instead of community. Contractor estimates are not based on market research.
They prepare estimates on the basis of schedule of rates, then add 30 percent for contractors’ premium,
increase the amount of work to be done and use sub standard materials.38 Similarly due to inappropriate
design operation and maintenance costs are so high that communities cannot pay for O&M and these
schemes are abandoned soon after the subsidy for O&M by government is stopped.
Monitoring & Evaluation procedures laid down in the PLGO have not been implemented in their true spirit.
Formation of Monitoring Committees and the inclusion of public in the monitoring process are the key
processes of PLGO which are not in place. Allocations for WSS sector are low in contrast to other sectors
specifically for the rural areas. There is need of sensitizing sector actors to raise voices for increasing
allocations. Nevertheless effective utilization of funds is much bigger issue than that of provision of funds.
LGs need to concentrate on integrated development to ensure efficiency in the implementation of services. In
this regard role master plans or development plan need to be prepared and followed during budget making
as well as implementation of services39.
There is a need to devise orientation and capacity building activities to enhance skills and understanding of
all concerned with budget development and management. At the same time there is also need for awareness
/advocacy campaign at the community level to enable the beneficiaries raise there voice for active
involvement in the decision-making process40.
37
Government of Sindh, Public Health Engineering Department, Notification October 18, 1997, Karachi
Sindh Katchi Abadis Authority Upgradation/Improvement of Katchi Abadis–Department vs. Contractor’s Work: A Comparative Study July 2000 pp. 5
39
Budget Analysis of Punjab Final Report WaterAid 2009
40
Analysis of Budget District and Mardan and Associated TMAs, By Muhammad Qasim Jan Consultant, WaterAid, Pakistan
38
Page 38 of 51
In Khyber-Pakhtunkhwa recent conflicts in various parts of the province and the adjoining tribal areas have
forced a large number of families to leave their homes, houses and villages and settle in camps established
for Internally Displaced Persons or with host communities. This displacement has added to the workload of
local councils and municipal entities. Keeping in view the above requirements, the Government of KhyberPakhtunkhwa in Local Governments and Rural Development Department, with technical and financial
assistance from UNICEF, has decided to create a dedicated WATSAN Cell in the department. The WATSAN
Cell shall function in the frame of Annual Work Plan. The Cell shall be positioned to enhance responsiveness
of local councils in terms of service delivery for WATSAN activities, including WASH response in
emergencies, through developing strategies, preparing action plans, facilitating implementation, capacity
building, knowledge management, monitoring and reporting.
In Sindh, citizens, CSOs, media and other relevant stakeholders are not involved in the budgetary and
planning process. The district governments do not genuinely practice the standard steps of budget making
process as open information, transparency and participation were non prevalent in the processes of annual
budgets making. The budgetary analysis depicts a wide margin of expenditures in water and sanitation
sectors in favour of urban areas. Hyderabad WASA did not receive any grants directly from provincial
government; therefore its annual budget was reported to be in deficit. No mechanism for safe disposal of
solid waste and treatment of liquid waste was found in any of the districts. Different monitoring committees
were found on paper, but in actual, these committees were defunct indicating the poor quality of civil works.
The local governments do not have written visions for development projects/programs which may be one of
the reasons why sufficient funds are not allocated by federal and provincial governments to cater to the
priority needs of all segments of the districts.
PHE Department gives priority and focus to water and sanitation in rural areas but the nature and number of
schemes does not cater to the need for water and sanitation facilities in all the villages. The budgetary
versions for different FYs reflect a large amount as under spent and carried forward to the next FY. This
shows defective planning before finalizing annual budgets and lesser capacity of different district
departments to consume the funds. The non-development expenses each year surmount the development
cost as around 82% of the total budget has been spent under salaries and non-salaries’ heads, whereas only
18% goes to development sector. When total development budget comes to a small portion of the total
budget, the expectation for spending on water and sanitation is blurred.
The budget preparation process needs to be made more participatory by involving public, CSOs, academia,
media and other relevant stakeholders. Before working on budget, thorough assessment of priority needs of
different geographical segments of the districts needs to be conducted. This will facilitate preparation of
rational and realistic budget to cater to the needs of the pro poor on equitable basis. The district
governments need to be persuaded to allocate handsome funds in the annual budgets to TMAs for operation
and maintenance of sanitation facilities and hire more sanitary staff for effective, regular and proper
sanitation in rural areas. The monitoring committees under district TMA administrations need to be formed
through a participatory process and made functional with the help of proper technical guidance and support.
The participation of communities in these committees needs to be strengthened. WaterAid partner CBOs
need to influence District and Tehsil/ Taluka governments through demonstration of their work to encourage
people to establish CCBs so that 25% development funds reserved for CCBs should be utilized through
them.
WA should also support programmes to build the capacity of the District Government and TMAs on planning
and designing of low cost schemes based on component sharing between communities and government
authorities. Orientation and skills’ development activities for LG staff to understand significance of water and
sanitation and the role of stakeholders’ participation in setting development priorities may help in effectively
addressing the issues of water and sanitation. Advocacy campaigns must be designed at the community
level to create demand for active involvement of all stakeholders in the process of budget development and
management. This can also include pre-budget seminars where the LG staff, elected officials, community
members and other stakeholders could discuss local needs and set a direction for setting development
priorities.
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3.1.2
Donors and NGOs
Networks, Advisory and Advocacy Organizations
Prominent among key networks, advisory and advocacy organizations are UNICEF, the World Bank, ADB,
WSP, WESNet, CDN and RSPN. WSP conducts research and advocacy on policy frameworks,
establishment of quality standards and regulatory mechanisms in WASH sector and provides technical
support and guidance to government and civil society organizations. WESNet is a broad and active network
of government agencies, donors, NGOs and sector experts on sharing learning, knowledge transfer, and
advocacy. CDN is a broad based network of OPP partners in urban and rural areas and RSPN a network of
rural support programmes in 103 districts of Pakistan. Both these networks are connected to a very large
number of CBOs working in WASH sector and provide technical and social guidance to their partners. OPP
and RSPs have the distinction of working very closely and effectively in partnership with government
department to scale up their innovative programmes demonstrated at community level. Research,
documentation, community mobilization, skill development and demonstration for evidence based advocacy
are important features of their work in WASH sector.
Support Organizations
Leading Support Organizations like RSPN and OPP believe in holistic perspective to address WASH issues.
Their programmes are based on inter-linkages with environment, human development, health and education.
They also understand the importance of working on inclusion and equity and consider social mobilization and
local knowledge crucial for improvements in WASH sector. Their role is to provide knowledge tools to
communities and government. They have done good collaborative work with WA in past as participants of
SACOSAN and PACOSAN, as key players in joint advocacy with the Ministry and as members of CLTS
group. As Support Organizations they can assist WAP partners in following ways.
• Build social and technical skills of local organizations:
These Support Organizations can provide technical guidance to CBOs to develop social organization,
undertake technical mapping and learn construction supervision and accounting skills. A crucial skill that
the CBOs need to develop in-house over time is the preparation of maps. The process and outcome of the
mapping exercise provides these CBOs with essential technical, managerial, advocacy and monitoring
tools. These tools help them in building strong partnerships with communities as well as government and
improve investment effectiveness in WASH sector.
• Support organizations with local roots:
These SOs can guide CBOs picked as partners by WAP to develop their ability to establish dialogue with
local government. For this purpose it is important that these organizations regularly documents and reviews
their progress, assesses weaknesses and find ways to overcome them.
• Encourage regular documentation, transparency and financial discipline:
Over the years, OPP-RTI has seen a number of NGOs collapse after the acceptance of substantial donor
funding at a stage when the organization is still immature. Regular record keeping and transparency in
account keeping has strengthened financial discipline of these organizations and proven to be a major
factor for building trust in the organizations. Once the organization loses the trust of the community it
intends to serve, it becomes difficult to re-establish again.
• Helping in scaling up:
Component Sharing - The component sharing model for providing water and sanitation services provides a
good example for promoting RBA in the WASH sector. The Government of Pakistan has already accepted
this model for improving WASH indicators in Pakistan. Under the component sharing model, beneficiary
communities are required to finance “internal development” (e.g., for water supply, government agencies
take care of the water mains – “externals”, while the community would be responsible for the household
distribution network, or in the case of sanitation, government would take care of trunk sewers/mains, and/or
Page 40 of 51
treatment facilities, while communities would be responsible for household sanitary latrine, underground
sewerage line in the lane, and secondary or collector sewerage).
OPP builds the capacity of its partner CBs in surveying and drafting, documentation of existing services
and proposal development. Starting from a primary unit of 500 household this work is subsequently scaled
up leading to the preparation of Union Council Plan Books containing seven maps showing (1) sewerage
systems, (2) water systems, tanks and pumping stations, (3) schools and training centres, (4) maternity
homes, health centres, clinics and hospitals, (5) playgrounds and parks, (6) solid waste disposal points and
(7) religious spaces. The UC Plan Book also contains detailed statistical and technical information and a
proposal for each UC concerning possible repairs and upgrading of the sewerage system. Similarly RSPs
help their partner CBOs prepare Union Council Based Poverty Reduction Programme (UCBPRP) which
includes WASH related interventions as well.
Community Based Organizations
WAP partner CBO/NGO or community activists need to follow the following process to receive financial
support and technical guidance for their local initiatives.
• CBO/NGO/activists should begin their work by holding dialogue with their communities to and mobilise
them to adopt the programme. If their mobilisation is successful, they can create a team including a social
organizer and a technical person to be trained by OPP-RTI, RSPN or other SOs
• The training should consist of the different mapping steps; orientation in the concept of internal-external
development, hands on training in low cost designing and training on the techniques for construction,
supervision, documentation and accounting.
• SOs should arrange financial support for these CBOs through WA on successful completion of their
orientation and training. This support may grow gradually but should be very modest in the beginning to
allow the organizations to develop at their own pace without being influenced by large inflows of funds in
the beginning41.
WAP
WAP’s mission is to improve access to water and sanitation for the poor and vulnerable groups. For this
purpose WAP works closely with its partners to experiment new solutions and influence decision makers. It
upholds the values of inclusion, continuous learning, collaboration, accountability, inspiration and courage.
Its new aims include promoting and securing people’s rights, increasing government’s capacity to deliver,
advocating for essential role of safe water in poverty reduction and developing as an effective global
organization. WAP can fulfill this task by building the capacity of its partner CBOs with the help of Support
Organizations. These Support Organizations build the capacity of CBOs in research, mapping and
documentation, community mobilization and demonstration for advocacy with the government. These CBOs
can improve effectiveness of investment in WASH sector by actively engaging Local Government and
provincial PHE departments through local demonstration and regular interaction with government authorities.
3.2
PSDP Allocations and Expenses on Social Sector
The table below gives a comparison of government allocations and expenses on various categories in the
social sector during the financial years 2003-04 to 2006-08. Expenditure as part of allocation ranged
between 7.29 percent to 60 percent for environment; 7.3 percent to 26.26 percent for education; 27.3 percent
to 41.8 percent for women development, social welfare and special education; 11 percent to 49.8 percent for
population welfare and zero percent to 94.6 percent (perhaps due to the very small allocation size) for local
government and rural development during these years. This expenditure pattern depicts a weak capacity to
41
Katharina Welle- WaterAid Learning for Advocacy and Good Practice: Water and Sanitation Mapping in Pakistan Based on field visits to OPP-RTI
and ASB, Water Policy Programme, ODI, Pakistan, June 2006
Page 41 of 51
manage resources as a major governance issue and constraint to development of social indicators in
Pakistan. Under spending provides enormous space to right holders to improve the social indicators by
effectively engaging and activating the government as duty bearer.
PSDP allocations and expenses on social sector *
(in million Rupees)
Allocation –expenditure/year
2003-2004
2004-2005
2005-2006
2006-2007
Environment
3114.20
11678.70
13499.81
24299.92
1882.00
908.00
3236.04
1773.19
(60%)
(7.7%)
(23.97%)
(7.29%)
Education
26375.4
106661.9
51668.27
44179.10
6060.3
9048.1
9140.53
11602.46
(22.97%)
(8.48%)
(17.6%)
(26.26%)
Women
5522.6
5328.1
5921.66
5786.14
2271.4
2226.9
1773.83
1945.49
(41.1%)
(41.8%)
(30%)
(33.60%)
Health
36833.3
57211
100523.12
95544.41
7499.8
8927.9
11547.14
23701.62
(20.3%)
(15.6%)
(11.5%)
(24.8% )
Population
21385.9
21826.3
21030.48
21345.05
2349
4684.6
7472.12
10623.38
(11.0%)
(21.5%)
(35.5%)
(49.8%)
LG/Rural Development
5015.1
150.0
5142.05
228.27
4743.0
0.00
0.00
50.10
(94.6%)
(0%)
(0%)
(21.9%)
2007-2008
23246.67
5360.84
(23.1%)
24299.92
1773.19
(7.3%)
1847.74
503.93
(27.3%)
92724.13
34022.44
(26.7%)
21345.05
10623.38
(49.8%)
228.27
50.10
(21.9%)
Source: Public Sector Development Programme, Environment Division *In each box sector allocation for each year is given on the top, expenditure
underneath and expenditure as percentage of allocations at the bottom
3.3 National and Provincial Water and Sanitation Policies, Strategies and Programmes
The following recently approved policies, Sanitation Policy 2006, National Drinking Water Policy 2009,
Punjab Urban Water and Sanitation Policy 2007, have been rolled out in quick succession to provide
guidelines and display the government’s commitment to improving the WASH sector. These polices have
made provisions for following the component sharing approach, building capacity of local councils to improve
water supply and sanitation services, optimizing impact of WASH services by improving responsiveness of
the local councils; inter and intra departmental and private sector coordination, networking and knowledge
management; preparation and administration of integrated, holistic and consistent behavioral change
communication plans to create focus on safe drinking water, sanitation and improved hygiene; and ensuring
result based implementation of municipal projects through monitoring and evaluation.
Besides these policies the following strategies and action plans also reaffirm the governments commitment
to the sector, Punjab Draft Sanitation Strategy 2007, Sindh Draft Sanitation Strategy 2008, Balochistan
Sanitation Strategy and Action Plan 2008, Balochistan Sector Strategy for Drinking Water Supply, Sanitation
and Hygiene 2006, AJK Sanitation Policy and Strategy 2008 and Draft Northern Areas Sanitation Strategy
2008.
In view of the above, WAP’s work with the government for better compliance with these policies provides
enormous space to improve WATSAN coverage during the next 5 years of this strategic period.
Page 42 of 51
The current status of the provincial water and sanitation policies/strategies are as follows:
Punjab: The Punjab Urban Water Supply and Sanitation Policy was approved in December 2007. The
policy provides an overarching framework for addressing the legal, regulatory, institutional,
administrative and environmental issues and challenges faced by the urban water and sanitation
sector in cities of Punjab. The provincial Sanitation Strategy (2007) and Punjab Water Act (2009)
are still in draft form.
Sindh: The Sindh Sanitation and Solid Waste Management Policies were ratified in 2007. Consultation
workshops are being held to devise a provincial strategy.
KHYBER PAKHTUNKWA: A draft provincial sanitation strategy has been developed which is now under
review by the government.
Balochistan: The Balochistan Sanitation Strategy and Action Plan was approved by the federal cabinet in
2008.
Gilgit Baltistan: Gilgit Baltistan which was most recently known as the Northern Areas had drafted a
Sanitation Strategy in 2008. The draft strategy will now be taken up by the newly elected
government.
Azad Government of the State of Jammu & Kashmir: AJK Sanitation Policy and Strategy was
approved in 2008.
National Sanitation Policy 2006: The policy provides a broad framework and policy guidelines to the Federal
and Provincial Governments and Federally Administrative Territories and Local Governments, to enhance
and support sanitation coverage in the country through formulation of their sanitation strategies, plan and
programmes at all respective levels. The basic focus of the policy is on the safe disposal of excreta by using
latrine and creation of an open defecation free environment along with safe disposal of liquid and solid
wastes; and the promotion of health and hygiene practices in the country.
National Drinking Water Policy 2009: The policy provides a broad framework and policy guidelines to the
Federal and Provincial Governments, State of AJK, Federally Administrative Territories, Local Governments,
development authorities and other organizations to address the key issues and challenges facing Pakistan in
the provision of sustainable access to safe drinking water. The policy focuses on removing the existing
disparities in coverage of safe drinking water and reducing sufferings from waterborne diseases. The policy
recognizes that access to safe drinking water is the basic human right of every citizen and that it is the
responsibility of the sate to ensure its provision to all citizens. The policy aims to ensure sustainable access
of safe water to entire population at an affordable cost and in an equitable and sustainable manner by 2020.
Pakistan Environmental Policy, 2005: The policy provides an overarching framework for addressing the
environmental issues including but not limited to pollution of fresh water bodies and coastal waters, lack of
proper waste management, natural disaster and climate change.
Draft National Health Policy, 2009: The policy acknowledges that the government is cognizant that there are
other determinants of health, including lack of access to safe water and sanitation that is aggravating
Pakistanis’ health status. The policy also recognizes that the effectiveness of health initiatives will only be
maximally achieved if the ministry of health is able to reach out to and help coordinate the activities of other
authorities including sanitation, water supply and environment.
Pakistan in the 21st Century - Vision 2030: Pakistan Planning Commission has formulated Vision 2030 for
Pakistan. Water and sanitation is covered under the health vision as “Water and Sanitation for All”, which
recognizes that “provision of safe water supply and sanitation is necessary to ensure a healthy population.
By 2015, the water supply and sanitation will stand extended to the entire population”.
Page 43 of 51
National Education Policy, 2009: The policy mentions that in the public sector around 36% of schools are
without drinking water facilities and 39% without sanitary facilities. The policy also acknowledges the urban
and rural divide as 90% of urban schools benefit from water sources and only 63% of rural schools do so. A
similar disadvantage pertains to sanitation facilities, which are available to 88% of urban schools but only to
56% of schools in the rural setting. The policy is not clear on hygiene education as “School Health” concept
is linked with sports activities, nutritional support and health screening. The policy only proposes a system of
checks and balances for the private sector to oversee hygiene issues.
Poverty Reduction Strategy Paper (PRSP): PRSP-II (April 2009) has aligned itself with Millennium
Development Goal 7 on environmental sustainability. Its targets include; integration of the principles of
sustainable development into country policies and programmes including climate change, sustainable access
to safe drinking water, sanitation and hygiene. The Section 9.14 sets out on-going and future initiatives in
section 9.20 including National Sanitation Policy roll out, Rural strategy for CLTS, IYS and GHWD, WASH in
schools, SLTS, and sector coordination.
Medium Term Development Framework (MTDF) 2005-2010: National Drinking Water Policy (NDWP), the
National Sanitation Policy (NSP) and the Clean Drinking Water for All Programme were prepared by the
Ministry of Environment as integral parts of the MTDF. The MTDF provides about US$2 billion (120 billion
rupees) for water and sanitation schemes
National Disaster Risk Management Framework, 2007: The NDMA has formulated this framework to guide
the work of entire system in the area of disaster risk management. Nine priority areas have been identified
within this framework to establish and strengthen policies, institutions and capacities over the next five years.
The framework makes reference to the provision of water and sanitation facilities during emergencies.
Clean Drinking Water for All Programme: The Clean Drinking Water for All Programme together with the
Clean Drinking Water Initiative by the Federal Government aim to improve the quality of drinking water.
Under both, water treatment facilities (water purification plants) are to be constructed at the UC level in
Pakistan. The project is being implemented in 40 Districts across all provinces, eight earthquake-affected
areas of Khyber-Pakhtunkhwa, as well as Azad Jammu and Kashmir. Now the Federal Government with
support of USAID has also started the “Safe Water for All Initiative” to provide technical assistance and
institutional capacity to maintain more than 6,000 water filtration plants.
Pakistan Water Sector Strategy (2002) and Medium Term Investment Plan (MTIP): The Pakistan Water
Sector Strategy envisages a MTIP which sets out objectives for both Water Resources Development and
Irrigation and Drainage separately, and divides the strategy in each instance between short-term (20032004), medium-term (2005-2011) and long-term (2012-2025). The MTIP also includes investment needs for
water supply and sanitation (10%).
3.4
Sector Coordination Mechanisms
Several fora exist for sector coordination, such as PEPC, NCCWS, Water and Sanitation Donor Coordination
Group, Wash Cluster, National Working Group on School Water, Sanitation and Hygiene Education,
WASCOs, CLTS Core Group, PACOSAN Steering Committee, PDSSP, PMDFC, Khyber-Pakhtunkhwa
WATSAN Cell, Provincial P&D departments, PHEs and TMAs.
Beside above WAP can also find opportunities to influence the policy implementation by the government by
providing support to the development of local CBO-Government Forums for collaboration in identification,
designing, costing, implementation, financing and management of water and sanitation schemes for
demonstration at local level
Page 44 of 51
3.5
Sector Budget
Clean Drinking Water for All (2005–2008) is a Rs.10 billion flagship federal program to install water treatment
plants in urban and rural areas across Pakistan.
Vision 2030 envisages that citizen shall have greater access to basic amenities like health, water and
sanitation. No budgetary allocations have been proposed under Vision 2030 for WASH sector.
Ministry of Health in Federal Budget 2009 has planned establishment of reference water quality control
laboratories and purification plants at National Institute of Health in the Federal Capital, 7 units in the
provinces and 150 units in rural settings; Improvement of Health Care Providers knowledge for prevention of
Hepatitis through focus on hospital waste disposal (425 Hospital) and Introduction of lab based surveillance
system for evidence based policy decisions and creating opportunity for epidemiological research studies
mainly community based, and establishment of provincial satellite offices of the Provincial Coordinators;
Advocacy & Behavior Change Communication (BCC) strategy development and execution on persistent
basis for prevention of Hepatitis by creating awareness among general masses for adoption of healthy
practices.
Under PSDP 2009 a revised project for clean drinking water initiative was approved by the ECNEC in April
2009. It aims for provision of one water filtration plant each in 409 Tehsils (subdivisions). Under Clean
Drinking Water for All, Rs 2 billion was allocated (one water filtration plant each in 6624 union councils).
Progress on this project is slow due to various reasons like non award of contract for Punjab packet, faulty
and slow installation of filtration plants in other packets. An amount of Rs 2.2 billion likely to be spent on the
programme.
Under Annual Plan 2009-10 Rs. 11 billion have been proposed for improvement of water supply and
sanitation as part of pro poor expenditure for achievement of MDGs..
3.6
Institutional Arrangements and Capacity
Ministry of Environment is the focal point for national policies, plans and programs for drinking water supply
systems and sanitation. The Economic Affairs Division (EAD) regulates donor funding in all sectors incl.
WASH. Water and Sanitation Authorities (WASA), PHEDs and TMAs are responsible for infrastructure
development and O&M at provincial level and below. Punjab and Khyber-Pakhtunkhwa governments have
established WASH cells to coordinate and regulate activities in the province and Sindh Govt. has also
established a separate Secretariat for Public Health Engineering. Pakistan Council for Research in water
Resources provides services for water testing and documents the status of water quality country wide. They
are also responsible for filtration of water for drinking purposes. Some NGOs such as OPP work closely with
government by providing technical support, while others help in building capacity
3.7
Performance Monitoring and Accountability
Various oversights, monitoring and reporting mechanisms have been created at National, Provincial and
District level but there is no single MIS. Existing mechanisms have limited capacity and due to narrow base
of organized communities reported information cannot be verified, questioned, analysed and used for
government accountability on a wide scale.
National drinking water policy 2009 has proposed a sector-wide approach for coordination and monitoring of
water and sanitation sector. The policy calls for streamlining of existing data collection systems such as
Pakistan Social and Living Standards Measurement (PSLM) Survey, Multiple Indicator Cluster Survey
(MICS) , Demographic and Health Survey and Population Census to strengthened and ensure availability of
authentic information for assessment of the progress with regard to enhancing access to safe water as well
as for decision making purposes and establishment of drinking water sector management information system
at the Federal, Provincial and local levels.
Page 45 of 51
National drinking water policy 2009 also includes provision for legislation in the form of Pakistan Safe
Drinking Water Act to ensure compliance with the National Drinking Water Quality Standards and holding the
water supply institutions and agencies throughout the country accountable to the general public. The Policy
also states that implementation and monitoring of the provisions made under the policy will be coordinated
by the Ministry of Environment in collaboration with Provincial, AJK, Gilgit-Baltistan and FATA Governments.
Following the approval of the Policy, the Federal, Provincial, AJK, Gilgit-Baltistan and FATA Governments
will develop comprehensive strategies and action plans for its implementation. Federal, Provincial, AJK,
Gilgit-Baltistan and FATA Governments will allocate necessary funds for implementation of the Policy in line
with the respective strategies and action plans. Reports on the progress of implementation of these
strategies and plans will be submitted to the Ministry of Environment on bi-annual basis.
This National Drinking Water Policy will be implemented and monitored in conjunction with the National
Sanitation Policy which was approved by the Federal Cabinet in October 2006. The “National Sanitation
Policy Implementation Committee” envisaged under the National Sanitation Policy will, therefore, be reconstituted as the “National Drinking Water and Sanitation Policy Implementation Committee”. Accordingly,
the Directorate of Environmental Health envisaged under the National Sanitation Policy will be renamed as
“Directorate of Water and Sanitation” to serve as Secretariat for the Committee. The National Drinking Water
Policy will be reviewed and updated after every five years by a committee constituted specially for the
purpose of reviewing the implementation of its guidelines, their efficacy and continued relevance to the
changing situation in the country.
Pak-EPA has been tasked to enforce environment quality standards. In compliance to its mandatory
requirement under the Pakistan Environmental Protection Act’s section 6 sub-section (2) clause (a)
undertake inquiries or investigation into environmental issues, either of its own accord or upon complaint
from any person or organization. Pakistan Environmental Protection Agency has established a complaint cell
in its organization where complaints from public are received and processed in coordination with Provincial
EPA’s. It has also set up chapters at provincial level
Monitoring of water and sanitation indicators at provincial level is the responsibility of Provincial Planning and
Development Departments and PHED. In selected urban districts Water and Sanitation Authorities (WASAs)
and in remaining urban and rural areas TMAs are tasked to monitor these indicators and engage target
communities in this process as well. All these mechanisms are going through the teething problems and
WAP based on its experience will work through influencing the National Sanitation Action Plan and other
such plans to activate and use these mechanisms in its geographic focus areas to demonstrate successful
examples for mainstreaming by various government agencies.
3.8
Why RBA?
The debate that followed the UN Declaration of Human Rights 1948, led to the expansion of the scope of
Rights, from the traditional civil and political rights to economic rights. Today we, in the NGO world, view
community participation, gender empowerment, and equity and inclusion as off shoots of these Rights, and
in current times the Rights discourse dominates most of what we do. Governments are also increasingly
recognizing the importance of this and have begun adopting the “Rights language” in legislations and
policies.
As poverty and inequality have increased especially in the developing world, WA’s new global strategy
envisages addressing its various manifestations through the Rights Based Approach. RBA necessarily
involves a change in power equations, as Gandhi said, ‘In trying to change power equations: Cooperate
whenever you can, Confront when you must; But ENGAGE always’. Supporting this move, WAP will begin
focusing its work on the most marginalized and vulnerable communities – people far removed from the
influence of a vocal media or civil rights movements. Due to their economic and social conditions, these
people lack basic requirements such as food, safe drinking water, access to sanitation facilities, medical
Page 46 of 51
care, and education. The Right to Water and Sanitation falls under the economic and social rights discourse,
and is more meaningful in this context.
WAP will need to be careful not to fall into the trap of becoming too result oriented, which usually undermines
the reality of long and sustained struggles needed to work meaningfully on rights. In such scenarios Rights
work gets narrowly focused on Policy Advocacy lobbying at the highest level and gets cut off from the
struggles and the leadership on the ground.
WAP is of the view that OPP’s component sharing model is currently one of the best suited approaches in
taking the Rights agenda forward in an urban context. It will also support our E&I work in rural areas.
Experience has shown positive results by enabling COs to engage with the government for improved service
delivery at local level, and has created grass roots leaders in the process. The work of other rights based
organizations will be extremely helpful to WAP in knitting its strategy to best fit and benefit communities.
3.9
Making Strategic Choices
WAP’s strategic response to the challenges in WASH sector depends on making choices on four important
concerns.
1) To chose between a focus on single activities or a holistic approach. A single activity focus can show
quick results in achievements of targets and a holistic view has to take into consideration equity and
inclusion (E&I), social mobilization, and sustainability.
2) To prioritize between upstream and downstream activities i.e. policy advocacy and demonstration on
ground - policy advocacy or policy implementation
3) To determine the nature of partnership with CBOs i.e. working with them directly or through a Support
Organization.
4) To decide on the nature of interaction with government and CBO partners.
Taking in view weak the implementation of WASH policies by the government, under spending of available
budget and it’s weak capacity for community involvement; enhancing the government’s effectiveness by
building CBO-Government collaboration in the field appears to be the most effective way of using limited
WAP resources for achieving maximum results under the RBA approach (see section above). WA can best
deliver results by enhancing the capacity of local community organizations with the help of SOs to perform
their role and influence the line agencies and elected representatives to make effective use of their resources
by playing their due role. This will result in significant improvement of the water and sanitation indicators by
working within the system and living within the given means. This would entail selection of key SOs in Sindh,
Punjab and Khyber-Pakhtunkhwa and linking them with WA’s partner CBOs selected according to well
designed criteria.
Page 47 of 51
Appendix 4
Risk management plan
ID
A
A.1
A.1.1
RISK DESCRIPTION
Internal Environment
Strategic
Shifts from WA's new global
strategy 2010/15
A.1.2
CURRENT CONTROLS
LIKELIHOOD
ACTIONS
RISKOWNER
- Implementation of an effective and
rigorous country strategy objectives
tracking system
- WAP Partners Directors meeting
Unlikely to
occur but
high impact
1. CSP aligned with new WA global strategy by the end of FY 2009-10
2. Develop and implement a robust PM&E system by the end of 2009-10
3. Develop and apply necessary guidelines and tools as per new CSP by the end of Q1 of
FY 2010-11.
CR,
SMT
WAP CSP not fully
internalized
- Ensure partners and WAP staff
completely understand CSP objectives
and new WA strategy and own the
same
Unlikely to
occur but
high
impact
1. Rollout & orientation of WAP CSP (2010/15) with staff & partners by the end of Q1 of
2010-11
2. Make sure that MPB’s & implementation on plans are in line with CSP – Ongoing
3. Realign WAP policies according to CSP by the end of Q3 of 2010-11
CR
SMT,
HR/Admin.
Coordinator
A.1.3
Diversion of focus of existing
partners (program /
geographical)
- Process during developing MPB's
Unlikely to
occur but
high
impact
1. Review partners selection criteria (program & finance) (by the end of Q2 -2010-11)
2. Review current partnerships and realignment according to CSP (by the end of FY 201011)
CR,
SMT
A.2
Operational
- Awareness of WAP systems amongst
staff
- Review WAP systems and its
implementation status periodically.
Unlikely to
occur but
high
impact
1. Finalize and approve all WAP policies:
- Finance manual (by the end of Q2 - 2010-11)
- Communications Strategy (by the end of 2010-11)
- HR Manual (by the end of Q1 of 2010-11)
- IT Policies & system ( by the end of Q2 - 2010-11)
- Water Quality Guidelines (by the end of Q1 - 2010-11)
- Fundraising Strategy (by the end of FY 2010-11)
- M&E framework (by the end of FY Q1 - 2010-11)
2. Orient all staff on approved WAP policies and systems - as and when approved
CR & SMT,
Asia RD &
HR/Admin.
Coordinator
A. 2. 2 Staff Security & Protection
- WAP participation in INGO's Security
Forum
- Security updates to staff through e-mail,
mobile, etc
Likely to
occur and
high
impact
1. Develop SOP's for office & staff security (by the end of Q3 FY 2010-11)
2. Staff & Office Insurance (travel, health, etc)
3. Monitor security situation in the operational areas
4. Staff Training on security issues
5. Maintain low profile
6. Carry out regular risk assessments of conflicting situations
7. Effective implementation of basic security operating guidelines.
8. Take appropriate safety measures to avoid any unpleasant situation.
CR &
HR/Admin.
Coordinator
A. 2.3
Inefficient management of
contract funding
No controls at the moment
1. Capacity building (WAP staff & partners both) (before start of contract with any donor)
2. Strengthen /develop & reinforce existing and new internal systems (monitoring, finance,
HR, etc)
CR,
SMT
A. 2.4
Staff Turnover
Salaries & benefits survey after every two
years in order to maintain competitive
edge
Unlikely to
occur but
high
impact
Unlikely to
occur but
high
impact
1. Develop and implement staff development plans (by the end of Q1 – FY 2010-11) and
career paths (by the end of Q3 – FY 2010-11)
2. Conduct salary survey every two years to align WAP salaries with other INGO’s working
in Pakistan, revise accordingly (due in 2010-11)
3. Develop informal feedback mechanisms by the end of FY 2010-11
CR
HR/ Admin
Coordinator
A 2. 1
A.3
Non compliance with WAP
systems
(Finance, Communications,
HR, IT, Water Quality,
Fundraising, M&E, etc)
Financial:
Page 48 of 51
ID
A.3.1
RISK DESCRIPTION
Non compliance with WA
accounts and financial
standards and guidelines
CURRENT CONTROLS
Orient staff on WA rules, guidelines, and
standards
A.3.2
Loss of cash/ embezzlement /
fraud
- Set safe limit for cash transaction
- Periodic physical count of cash balance
- Effective internal control mechanisms
A.3.3
Non compliance with Audit
observations
Adopt effective financial monitoring
mechanisms for WAP as well as partners
Unlikely to
occur but
low impact
A.3.4
Improper utilization of funds
by partners.
More frequent monitoring visits and
checks by WAP program & finance staff.
Unlikely to
occur but
high
impact
1. Get timely quarterly financial reporting from Partners
2. Regular variance analysis and feed back to partners on their finance reports
3. Six monthly partners monitoring visits by finance staff
4. Arrange financial management trainings for partners finance staff
5. Identify gaps and needs and prepare/finalize plan for addressing these gaps.
A. 3.5
Non compliance with WAUK
financial reporting
requirements
Periodic review of reporting requirements
by WAUK
Check the review / comments by RD on financial reporting and make necessary correction,
if required on regular basis
Manager
Finance
A.3.6
Loss of assets or property
Unlikely to
occur but
high
impact
Unlikely to
occur and
low impact
1. Keep fixed assets register up to date
2. Periodic physical verification of assets
3. Develop and convey guidelines for use / loss and sale of assets.
HR / Admin
Coordinator
- Monitor changes in rules with relevance
to INGO's working in Pakistan, and
comply.
- MoU signed between WAP and EAD,
Govt of Pakistan valid till 2012
Unlikely to
occur but
high
impact
1. Keep EAD up to date on activities carried out by WAP
2. Renewal of MoU between WAP and EAD, Govt of Pakistan after expiry of current MOU.
CR
HR/ Admin.
Coordinator
Monitor changes in FBR rules and
ordinances with relevance to INGO's
Unlikely to
occur but
high
impact
Regular submission of monthly and annual tax returns and statements
Finance
Manager
- Review of quarterly, 6 monthly and
annual reports (progress & financial)
- Bi annual partner monitoring visits
- Need based additional partner
monitoring visits
Unlikely to
occur but
high
impact
1. Develop CP guidelines for monitoring and target/plan tracking (by the end of FY Q1 2010-11)
2. Strengthen internal documentation within WAP – with ref to partners performance
(Starting from Q1 of - 2010-11)
3. Develop SMART objectives & indicators / outputs - (on yearly basis)
4. Partner monitoring to be on top priority
5.Regular QRP session held in WAP (from Q1 of 2010-11)
6. Develop and capacitate partners on internal monitoring mechanisms within their own
organizations (starting from Q1 - 2010-11)
CR,
SMT
A.4
A.4.1
- Insure new equipment, furniture &
fixtures that may be purchased
- Monitor use of WAP assets for official
purposes as per guidelines
- Storage of monthly data backups
secured
Legal Compliances/Regulations:
MoU with EAD, Govt. of
Pakistan revoked
A. 4. 2 Non-Compliance of Taxation
rules set by Federal Board of
Revenue
A. 5
Programme:
A.5.1
Non achievement of targets
and plans
LIKELIHOOD
Unlikely to
occur but
high
impact
Unlikely to
occur and
low impact
ACTIONS
Monitor updates in Global Accounts manual on periodic basis, make relevant changes in
WAP accounts manual and convey the same to staff and WAP partners
1. Communicate finance / compliance policies to all staff
2. Monthly balance checks, signing cheques by two senior staff members
3. Develop “delegation of power” policy (financial)
4. Periodic physical count of cash balance, monthly bank reconciliations, management
accounts, etc
1. Regular partner monitoring visits by WAP finance staff
2. Build capacity of partners to maintain proper / updated accounts through training and
need based guidance.
Page 49 of 51
RISKOWNER
Manager
Finance
Manager
Finance
Manager
Finance /
Finance
Officer-Sun
Manager
Finance
ID
A. 5.2
B
RISK DESCRIPTION
WAP being criticized by
disgruntled partners
CURRENT CONTROLS
LIKELIHOOD
ACTIONS
1. Meet with high risk partners individually and share areas of concern
- Identify & document the issues
Likely to
occur but
2. Together agree on target areas of improvement
- Bridge gaps through mutual
low impact
3. Close monitoring
negotiations / mediations where
4. Document process
possible
- Inform partner in advance and provide
sufficient time and support to address
weak areas
- Comprehensive partnership agreements
RISKOWNER
CR,
SMT
External Environment
B.1.1
Political Instability, law &
order situation in Pakistan
and change in Govt. systems
and policies may impact
sectors and approach (RBA,
E&I, etc)
Scanning of political environment,
security, etc through News papers,
quarterly partner reports, security alerts,
etc.
Likely to
occur and
high
impact
1. Re-alignment of plans, strategies and outputs
2. Maintain transparency through social auditing
3. Diversification of work & resources
4. Increase social connectivity through equity approaches
5. Develop contingency plans and strategies
6. Promote community based planning, implementation, monitoring and maintenance
mechanisms.
7. Develop and implement 'working in conflict' guidelines
8. Carry out regular risk assessments of political, economic, conflicts etc.
B.1.2
Economic Instability, Govt is
reducing development
expenditure.
Major earthquake, floods,
drought, energy crisis,
tsunami
- Address cost of living
- Cost of projects need to be reviewed
Unlikely to
occur but
medium
Likely to
occur and
major
impact
1. Diversity in funding donors
2. Diversification of work & resources
SMT/ partners
1. Regularly check first aid and materials to ensure that they are working condition
2. WAP staff training on emergency management
3. Train partners on disaster management & mitigation measures
3. Develop a strategy for emergency response (flood, drought in partners areas)
4. Maintain rescue plans and resources at WAP & partners level
CR,
SMT,
HR/Admin
Coordinator,
Partners
Change in donor priorities /
funding environment
WAP has identified and started
responding to this risk. Program funding
department in UK and WAP are working
together for attracting funds from donors.
Unlikely to
occur but
high
impact
1. Develop funding strategy
2. Start searching funding from more then one donor
3. Keep an eye on donor priority areas and changing environment
CR,
SMT
B.1.3
B.1.4
Page 50 of 51
SMT
Appendix 5
Sources of Information
1. ADB-Country Paper Pakistan-Asian Water Development Outlook 2007.
2. Easterly, William The Political Economy of Growth Without Development: A Case Study of Pakistan Development
Research Group, World Bank June 2001
3. GoP. Economic Survey of Pakistan, Ministry of Finance, 2009.
4. GoP. Population Census 1998.
5. GoP, National Environmental Policy, 2005
6. GoP. Discussion Paper: National Strategy and Action Plan – Water Supply and Sanitation, Ministry of Environment,
2005.
7. GoP, National Sanitation Policy, 2006.
8. GoP. National Drinking Water Policy, 2009.
9. GoP. Pakistan Millennium Development Report 2006
10. Government of Sindh-Planning and Development Department, District Planning Manual, Karachi April 2005
11. Hasan, A, The Orangi Pilot Project-Research and Training Institute’s mapping process and its repercussions, Draft,
February 15, 2005
12. Khan, Arshad , Global Change Impact study Centre, Islamabad, January 2009
13. Sindh Katchi Abadi Authority- Upgradation/Improvement of Katchi Abadis- Karachi 2000
14. UNDP. Human Development Report. 2008
15. Urban Resource Centre-Facts and Figures-volume 16 number 8, Karachi August 2008
16. WaterAid. Nepal Country Strategy, 2006-2011
17. WaterAid Bangladesh Country Strategy, 2006-2011
18. WaterAid. Global Strategy, July 2009.
19. World Bank. Pakistan’s Water Economy Running Dry, Pakistan Water Strategy Paper (Draft), 2005.
20. Zaidi, A. The Rural Water Supply and Sanitation Sector in Pakistan: Policy, Institutions and Prospects. Study
commissioned by WaterAid, UK. 1997

Pakistan country strategy 2010-2015

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